FALL RIVER • DOWNTOWN URBAN • RENEWAL • PLAN Draft February 2018 Acknowledgements

Home , Bristol (1866 steamboat), Durfee Mills, Ruggles Park

City of Fall River Prepared for the Fall River Citizens' Advisory Group Redevelopment Authority Mayor Jasiel F. Correia II Jamie Karam William Kenney, Chairman Christina Catelli City Council Anne E. Keane Christopher Antao Shawn E. Cadime Joseph Oliveira Jerry Donovan Joseph D. Camara Kara O'Connell Joseph Holdiman Stephen A. Camara Consultant Team Bradford L. Kilby FALL RIVER OFFICE OF ECONOMIC Pam Laliberte-Lebeau DEVELOPMENT HARRIMAN Stephen R. Long Kenneth Fiola, Jr., Esq., Executive Vice Steven G. Cecil AIA ASLA Leo O. Pelletier President Emily Keys Innes, AICP, LEED AP ND Cliff Ponte Steven Souza, Economic Development Kartik Shah, LEED AP Administrative Assistant Derek R. Viveiros Lily Perkins-High Maria R. Doherty, Network Administrator Planning Board Lynn M. Oliveira, Economic Development FITZGERALD AND HALLIDAY Coordinator Francisco Gomes, AICP, ASLA Keith Paquette, Chairman Michael Motta, Technical Assistance Mario Lucciola Specialist FXM ASSOCIATES Alice Fagundo Francis X. Mahady Charles Moniz Dianne Tsitsos

BONZ AND COMPANY Robert Salisbury Table of Contents

1. Executive Summary...... 1 2. Characteristics...... 19 3. Plan Eligibility...... 62 4. Plan Objectives...... 105 5. Time Frame...... 125 6. Financial Plan...... 126 7. Requisite Municipal Approvals...... 128 8. Site Preparation...... 134 9. Public Improvements...... 135 10. Relocation...... 138 11. Redeveloper’s Obligation...... 139 12. Disposition...... 140 13. Citizen Participation...... 141 14. Massachusetts Environmental Policy Act (MEPA) ...... 144 15. Process for Future Changes: 760 CMR 12.03...... 144 16. Severability...... 145 List of Tables and Figures

Figure 1-1: Downtown and Waterfront Urban Renewal Plan Boundaries...... 3 Figure 1-2: Developing the Spine of North and South Main Street...... 7 Figure 1-3: Employment Trends in Fall River and Bristol County - Retail Trade...... 9 Figure 1-4: Employment Trends in Fall River and Bristol County - Accommodation and Food Services...... 10 Table 1-1: Fall River Urban Renewal Area Retail Gap Analysis: Indicative Results...... 11 Figure 1-5: Average Annual Demand for Selected Monthly Rents by Age Group, Fall River Urban Renewal Market Areas...... 12 Figure 1-6: Office Space Occupancy Fall River and Submarket 2008 - 2022...... 13 Table 1-2: Projected Growth in Occupancy in Medical & Total Office Space in Fall River...... 14 Figure 1-7: Employment Trends in Fall River and Bristol County, 2005-2021: Educational Services...... 15 Figure 2-1: Fall River, Mass in 1812 ...... 18 Table 2-1: Downtown Urban Renewal Plan Urban Renewal Area Snapshot...... 19 Figure 2-2: Fall River Downtown Urban Renewal Area...... 20 Figure 2-3: South Coast Rail Phasing Plan ...... 23 Figure 2-4: Natural Resources...... 24 Figure 2-5: Flood Zones in the Urban Renewal Area...... 26 Figure 2-6: Boundaries of the Project Area...... 28 Figure 2-7: Existing Uses...... 29 Figure 2-8: Current Zoning...... 30 Figure 2-9: Current Zoning including Arts Overlay District...... 31 Figure 2-10: Proposed Uses and Public Park Improvement...... 32 Figure 2-11: Proposed Zoning...... 33 List of Tables and Figures (Continued)

Figure 2-12: Parcels to be Acquired...... 34 Figure 2-13: Lots to be Created for Disposition...... 35 Figure 2-14: Buildings to be Rehabilitated and/or Constructed...... 36 Table 2-2: List of Parcels for Acquisition...... 38 Table 2-3: Snapshot of Parcels for Acquisition...... 39 Figure 2-15: Parks within the Urban Renewal Area...... 42 Figure 2-16: Parks within a Five-Minute Walk of the Urban Renewal Area...... 43 Table 2-4: B-N and CBD Dimensional Restrictions...... 46 Table 2-5: CMD and CBD Dimensional Restrictions...... 47 Figure 2-17: Fall River Downtown Urban Renewal Area and Main Street as a connective spine through the downtown ...... 50 Figure 2-18: Urban Design Character Areas...... 53 Figure 2-19: Public and private open spaces close to Downtown Fall River...... 59 Table 2-5: Urban Design Conditions and Possible Solutions...... 60 Table 3-1: Findings Required by DHCD...... 63 Table 3-2: Applicability of the Definition of Decadent Area to the Existing Conditions...... 64 Table 3-3: Vacancy Totals from the Downtown Inventory...... 67 Figure 3-1: Downtown Inventory - Existing Uses...... 68 Figure 3-2: Downtown Inventory - Locations of Fully- and Partially-Vacant Buildings...... 69 Table 3-5: Land Coverage...... 70 Table 3-4: Building Age...... 70 Figure 3-3: Buildings Built Before 1930...... 72 List of Tables and Figures (Continued)

Figure 3-4: Buildings Built Before 1978 and 1980...... 73 Figure 3-5: Hazardous Materials Sites...... 74 Figure 3-6: Historic Resources...... 75 Figure 3-7: Circulation...... 78 Figure 3-8: Parking Supply and Demand...... 79 Figure 3-9: Downtown Urban Renewal Area...... 81 Table 3-6: Demographic Data: Population and Households Compared...... 81 Table 3-7: Workforce Characteristics...... 83 Figure 3-10: Environmental Justice Communities...... 84 Table 3-8: Environmental Justice Criteria in Comparable Municipalities...... 85 Table 3-9: Housing Characteristics...... 86 Table 3-10: Business Profile - Downtown Urban Renewal Area...... 87 Table 3-11: Business Profile - Fall River...... 88 Table 3-12: Business Profile - Comparison...... 89 Table 3-13: Average Annual Wages...... 90 Table 3-14: Parcels with Tax Liens ...... 92 Figure 3-11: Parcels with Tax Liens ...... 93 Figure 3-12: City of Fall River Community Priority Areas...... 102 Table 3-15: Consistency with the Commonwealth's Sustainable Development Principles...... 104 Figure 4-1: Parking Lots in Downtown Fall River...... 106 Figure 4-2: On-Street Parking Types and Locations in Downtown Fall River...... 107

Figure 4-3: Developing the Spine...... 110 Figure 4-4: Filling in the Blanks...... 111 Figure 4-5: Connecting the Corridors...... 112 Figure 4-6: 285 - 255 South Main Street - Scenario 1...... 113 Figure 4-7: 285 - 255 South Main Street - Scenario 2...... 113 Figure 4-8: 285 - 255 South Main Street - Scenario 3...... 113 Figure 4-9: 467 Spring Street...... 114 Figure 4-10: 82 Troy Street...... 114 Table 4-1: Current Uses of Test Sites for Fit Studies...... 115 Figure 4-11: 427 Plymouth Street - Residential/Retail...... 116 Figure 4-12: 427 Plymouth Street - Office Only...... 116 Table 4-2: Retail Gap Analysis...... 117 Figure 4-13: Retail Space: Historical and Forecast New Absorption and Vacancy Rate...... 118 Table 4-3: Projected Growth in Occupancy in Medical and Total Office Space...... 119

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN vii List of Appendices (Separately Bound)

A. Municipal Approvals and Letters of Support B. 760 CMR 12.00 C. Economic Development and Real Estate Market Conditions and Trends: FXM Associates D. Public Engagement Materials E. Public Meeting Minutes and Notes F. Media Reports G. Notifications H. Environmental Notification Form I. Parcel Inventory J. Pocket Park Case Studies K. Downtown Inventory

viii FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 1. Executive Summary

1. Executive Summary

FXM Associates, Fitzgerald & Halliday, and historic downtown. Despite anchor uses, such Introduction Bonz and Company. as the Fall River Justice Center and City Hall, this urban renewal area has significant vacancies. Fall River is an exciting city with many assets, Both the Bristol County Superior Court and including a historic downtown and extensive Purpose of this Plan the Fall River District Court close at 4:30 pm, waterfront area. The Fall River Redevelopment while the isolation of City Hall from North and Authority (FRRA) sponsored the production This Fall River Downtown Urban Renewal Plan South Main Streets make it an ineffective single of two urban renewal plans, starting in the fall (the Urban Renewal Plan) is an urban renewal anchor for the area. of 2016. The focus of this plan is on the City’s plan as defined and enabled by Massachusetts downtown; the focus of the second plan is on General Laws (MGL) Chapter 121B and has The FRRA has identified a number of the waterfront. been prepared in accordance with proposed properties that could be redeveloped as mixed revised 760 CMR 12.00 as required by the use buildings, including residential and retail or The FRRA appointed a Citizens’ Advisory Department of Housing and Community other commercial uses. Adding more residents Group to provide input and feedback during Development (DHCD). to the downtown would create incentives for the process and held two public meetings: one businesses to remain open into the evening in February 2017, and the second in April The purpose of this Urban Renewal Plan hours, increasing the activity and vitality 2017. The FRRA also held an Open House at is to identify current conditions that have downtown. City Hall, leaving boards describing both plans been obstacles to investment, determine the up in the atrium for three weeks in May to June needs of the downtown and the goals for its However, a parking analysis of the downtown 2017 and giving the public the opportunity to redevelopment, and define those actions that suggests that if the existing buildings downtown deposit comments in a "Suggestion Box". will create incentives for the private market, were fully occupied, the available parking might over time, to address the existing conditions. not be sufficient for all uses. The conditions To assist with the planning process and the under which cars are parked, or stored, during preparation of the plan, the FRRA hired a The primary purpose of this plan is to create the day is in flux as the advent of ride-sharing consultant team led by Harriman and including a catalyst for the revitalization of Fall River's services and the early promise of autonomous

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 1 vehicles are projected to have significant impact • Provide public parking, landscaped and • Use of design guidelines to control the on the need to store vehicles for long periods of lit, to support downtown businesses as physical form of private future develop- time downtown. These potential benefits have vacant or partially vacant buildings are ment within the urban renewal area not yet materialized, and the FRRA understands rehabilitated During the course of the planning process for that additional public parking may be needed The actions the FRRA will take to support the this Urban Renewal Plan, opportunities to during the life of this urban renewal plan to redevelopment of parcels in strategic locations address other conditions within the downtown support increased activity downtown. within the downtown are as follows: became evident based on public feedback and research into previous planning processes. Key The goals for this urban renewal area are as • Acquire underperforming buildings actions include the following: follows: and/or vacant land • Attract residents downtown to sup- • Reparcelization, as necessary, into devel- • Establish critical links between the wa- port existing and future businesses and opable parcels terfront and the downtown; those links should be physical (along Columbia services that will also serve adjacent • Disposition of the parcels to one or more Street, Anawan/Pocasset Streets and neighborhoods private developers who will undertake Central Street/Bedford Street), cultural, • Support the rehabilitation and redevel- the activities necessary to add build- and economic. opment of vacant buildings along the ings, landscaping, and public/private Main Street "spine"; expand into other open space • Undertake additional studies to examine the parking and circulation needs within areas of the downtown as needed • Control over the development by the the downtown • Establish design guidelines within this use of a Land Disposition Agreement plan to control the physical character- (LDA) and the design guidelines found • Install public infrastructure improve- istics of future development to support in this urban renewal plan ments such as public parking or open the goals of this plan space to enhance the urban renewal area and attract additional private investment

2 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 1. Executive Summary

Legend Downtown Urban Renewal Plan Boundary Waterfront Urban Renewal Plan Boundary

Data Sources: Base Map from Esri, DigitalGlobe, GeoEye, Earthstar Geographics, CNES/Airbus DS, USDA, USGS, AEX, Getmapping, Aerogrid, IGN, IGP and swisstopo.

Figure 1-1: Downtown and Waterfront Urban Renewal Plan Boundaries

Source: Esri, DigitalGlobe, GeoEye, Earthstar Geographics, CNES/Airbus DS, USDA, USGS, AeroGRID, IGN, and the GIS User Community FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 3 Additional information about the goals for one or more residents and/or businesses, it must is authorized to undertake certain actions, the downtown is provided below within this follow the requirements described in Section 10 including the acquisition and disposition of Executive Summary in Plan Goals and specific Relocation. Additional information about the land, the redevelopment of land, the issues of actions are described in the Implementation parcels for acquisition is provided in Section 2 bonds, the establishment of certain controls on Plan. Characteristics. land developed by others, and the acquisition of land by eminent domain for the public purpose The boundary of the urban renewal plan The FRRA will evaluate the need to acquire established by this Urban Renewal Plan. contains 198 acres. To support the actions parcels over the life of this plan and will amend identified in this plan, the FRRA has identified the plan as necessary to add or delete potential 24 parcels for acquisition of approximately 12 acquisitions. Should property owners redevelop Plan Goals acres, or about 6% of the total area. Over time, their property in accordance with the goals and the FRRA expects to dispose of all or most of the design guidelines established by the urban The primary goal of this Plan is to encourage these parcels, excepting those used for public renewal plan, the FRRA may remove those and support the revitalization of Fall River’s infrastructure improvements and public open parcels from the list of acquisitions. downtown. Over the years, the area has declined space. so that many buildings are fully or partially vacant and empty lots are covered in asphalt and If the FRRA acquires all parcels identified for Fall River Redevelopment dedicated to parking. Few public spaces exist in acquisition, the estimated number of businesses the area, and there is little activity at night. that may be displaced is approximately 18. Authority This plan does not anticipate the displacement However, the existing buildings downtown The Fall River Redevelopment Authority, of residential units. These numbers are show the development pattern over time is a public body politic and corporate, duly estimated based on a visual survey undertaken and create a sense of place that is unique to created pursuant to M.G.L. c. 121B, § 4, by in December 2017 and information from the Fall River. Many buildings are historic with the City of Fall River, MA on July 28, 1964. City Assessor's database. Should the FRRA architectural details not found on newer The FRRA, as a redevelopment authority, acquire any parcels requiring displacement of buildings. From parts of the downtown there is

4 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 1. Executive Summary

a visual link to the waterfront, notably from the understanding of what the community expects There is a second link between the waterfront Gramada Plaza on the western side of City Hall, from developers as projects move forward and the downtown – the Arts Overlay District, overlooking the Braga Bridge, Battleship Cove, within the downtown area. a regulatory mechanism that links both areas and the Taunton River, and along Central Street by encouraging the development of uses that towards Battleship Cove. Connection to the Waterfront support or relate to the arts. Again, most of the near-term strategies related to the Arts Overlay The strategies and actions defined by this Because the FRRA sponsored the planning District are found within the Waterfront Plan, Plan are targeted towards the activities that process for both the downtown and the however, it is hoped that the proposed changes a redevelopment authority can undertake in waterfront at the same time, the parallel discussed in that Plan will spread up Anawan / support of the revitalization of a decadent area. processes allowed the FRRA and the consultant Pocasset Street and Columbia Street, and up the The FRRA has identified several parcels that it team to consider how the downtown and Central Street/Harborside Park/Green Street/ may acquire in support of the redevelopment of the waterfront could be linked. The two are Bank Street corridor, to the downtown. the downtown. By partnering with one or more separated by a significant topographical change developers, the FRRA will undertake projects from the Taunton River, up a steep slope to Finally, a connection between the downtown that can act as examples to, and an incentive for, North and South Main Streets. Historically they and the waterfront also exists in terms of demand additional private investment in the area. were linked by the Quequechan River; the river in the real estate market. The vision for how now flows under the downtown until it reaches these two districts can interact with each other In addition, the FRRA intends to support the Taunton River. Although daylighting the assumes that each area will attract a different public improvements, such as the continuance river through the downtown has been discussed market. The downtown is expected to attract of the City’s existing streetscape program and in the past (see Section 9. Public Improvements), those who want smaller, urban spaces with the creation and programming of public open near-term interventions for the river will be varying floorplates and materials that reflect the space, that will increase the attractiveness of covered in the Fall River Waterfront Urban historic architecture of the downtown. Under the area to potential residents, business owners, Renewal Plan. this scenario, future residents will be attracted and redevelopers. Suggested design guidelines to pedestrian-oriented streets that have a mix and a design review process will create an of retail, experiential retail, personal services,

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 5 and restaurants along the ground floor. Retail and restaurants will enhance the urban feel and reinforce the historic materials of the downtown and the cultures of the people who live in Fall River. Small, innovative businesses will be attracted to this area.

The vision for the waterfront is to attract residents and businesses looking for something new. The floorplates of new construction will be more suitable for certain types of businesses and for standard residential floorplans. The view of the water will add value to higher-level units, while access to the South Coast Rail commuter station will be attractive to others. Retail and services will be in two categories: those that serve the residents and employees of the existing and new neighborhood and those that focus on visitors to the waterfront.

6 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 1. Executive Summary

Figure 1-2: Developing the Spine of North and South Main Street

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 7 Retail Trends and Projections Summary of Market Conditions Two types of analyses underlie this discussion of retail trends. The first is an analysis of available This market conditions analysis focuses on jobs; the second is a measure of the gap between potential for growth in three parts of the the demand for goods and services and the types economy which are likely targets for downtown of retail currently available. In both cases, the development: the retail market, the rental methodology and results are provided in detail housing market, and the office market. The in Appendix C: Economic Development and Real full discussion of the data and methodology Estate Market Conditions and Trends: from FXM underlying this summary is provided in Associates. Note that the reliability of projections Appendix C: Economic Development and Real into the future is important in interpreting the Estate Market Conditions and Trends: from results shown in this analysis for retail and office FXM Associates. The good news for both the trends. Trends over the last decade in retail downtown and the waterfront is that demand employment, whether at the city- or county- potential exists for residential, retail, and office level, provide only a limited guide to the future. space. The challenge is how to address that The 2008-2009 recession caused large drops in demand in both areas. As the downtown and the numbers of jobs in the city and county, but waterfront change in response to their respective at the city-level, the decline began in 2006. In visions, the character of each should attract both places, recovery began in 2011, but is not residents and businesses looking for different yet well-established enough to serve as the basis space and amenities. for reliable projections.

Although there is evidence of an upward climb in the city since 2011 (Figure 1-3), suggesting

8 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 1. Executive Summary

INSERT THIS AND FOLLOWING SHEET AS REPLACEMENTS FOR PAGES 15 & 16 IN WATERFRONT PLAN AND PAGES 13 & 14 IN DOWNTOWN PLAN

Figure 2

FigureSource: 1-3: MassDOLEmployment ES202Trends in dataFall River series; and Bristol US CountyDept -of Retail Commerce, Trade Bureau of Economic Analysis, Source:Regional MassDOL&WF Economic ES202 Informationdata series; US Dept System; of Commerce, and Bureau FXM of AssociatesEconomic Analysis, Regional Economic Information System; and FXM Associates Although there is evidence of an upward climb in the city since 2011, suggesting that retail trade may have growth potential in the city, the performanceFALL RIVER DOWNTOWN:at the DRAFT URBAN RENEWAL PLAN 9 county level shows little sign of recovery yet, and the trend lines for both to 2021 decline. The level of confidence in the Fall River projection, however, is very low, leaving open the possibility of future growth in the sector. This recent pattern of growth is confirmed in subsequent analyses of historical trends and projections of net absorption of retail space in Fall River. At the county level, though, the R2 value is quite high, indicating the downward trend there may be more reliable. that retail trade may have growth potential in the city, the performance at the county level shows little sign of recovery yet, and the trend lines for both to 2021 decline. The level of confidence in the Fall River projection, however, is very low, leaving open the possibility of future growth in the sector. This recent pattern of growth is confirmed in subsequent analyses of historical trends and projections of net absorption of retail space in Fall River. At the county level, though, the R2 value is quite high, indicating the downward trend there may be more reliable.

Closely related to the retail sector and included in the retail analysis is Accommodation and Food Services (NAICS code 72). Here the trend has been positive for both the City of Fall River and Bristol County. Figure 1-4 shows both historical employment and projected trends, as the R2 value is high for both, making the projection reasonably reliable.

The retail gap analysis1, a snapshot of activity at the time the report was generated, indicates that Figure 1-4: Employment Trends in Fall River and Bristol County - Accommodation and Food Services Source: MassDOL&WF ES202 data series; US Dept of Commerce, Bureau of Economic Analysis, Regional Economic Information 1 This analysis should be eviewedr and updated on a System; and FXM Associates

10 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 1. Executive Summary

there is currently potential demand to support 28 stores, across thirteen categories, for an estimated 92,000 total square feet of additional retail space within the effective market area for the downtown and the waterfront. How much is captured by the downtown and the waterfront depends upon which stores are appropriate for each area and how those opportunities are captured as part of the implementation of this Urban Renewal Plan and other marketing efforts by the City. The highest amount of projected space (15,300 square feet) is for Full- Service Restaurants. Food-related businesses are clustered in the top one-third of categories showing a retail gap, representing an opportunity for strategic clustering of related businesses. Other businesses represent the types of goods Table 1-1: Fall River Urban Renewal Area Retail Gap Analysis: Indicative Results Source: The Nielsen Company, Segmentation and Market Solutions, 2016; various industry sources for sales per square foot and square and services appropriate for downtown/village footage per store; and FXM Associates center areas. potential use for both the downtown and feet of vacant retail space, a declining vacancy The analysis also examined trends in the supply, waterfront urban renewal areas, and because the rate, and average annual net absorption (new occupancy, vacancies, and pricing of retail retail opportunity gap analysis is only a snapshot occupancies minus move-outs) of 67,500 square space because retail is an especially important of current potential. In the second quarter of feet per year. The implication of this forecast is regular basis to ensure that the data is consistent with current 2017, Fall River had about 266,000 square that without new construction or rehabilitation market conditions.

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 11 of currently underutilized space virtually all the existing inventory would be absorbed within the Average Annual Demand for Selected Monthly Rents by Age Group next 4-5 years. This forecast of net absorption Fall River Urban Renewal Market Areas coincides with the employment growth trends 2016-2021 observed in recent years (since 2011; see Figure 1-3). Caution must be noted in the near term, 1,400 however, because the extremely low average rents will challenge developers to create especially 1,200 attractive space in prime locations for the higher Rentals @ $1,800/month rents necessary to support new construction or 1,000 rehabilitation of existing space. Rentals @ $2,100/month 800 Rentals @ $2,400/month Rental Housing Demand 600 Analysis Rentals @ $2,700/month Number of Households of Number 400 Housing can be a critical component of a downtown renewal plan, providing not only a 200 market for the goods and services produced in the downtown area and prospective employees 0 for downtown businesses, but also vital street Under 35 Age 35-44 Age 45-54 Age 55-64 Age 65-74 75 and Over activity both during and outside of business hours. Properly integrated, it is a critical component of most mixed-use developments, Figure 1-5: Average Annual Demand for Selected Monthly Rents by Age Group, Fall River Urban Renewal which dominate developer preferences. Market Areas Source: FXM Associates, Housing Demand Model, November 2016

12 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 1. Executive Summary

Households within the under 35 and 55 to 74 age groups are frequently targeted by developers for urban and specialty rental housing, such as re-use of formerly commercial and institutional structures, because they are less likely to have school age children and therefore more open to units with fewer bedrooms in locations that are not necessarily ideal environments for children. They are also likely to be attracted to denser urban environments that allow walking distances to restaurants and retail shops. Households in other age groups, however, may also comprise demand for housing within the market area, and this report also assesses overall potential demand for all age groups.

Based on the combined waterfront and downtown urban renewal areas’ current share of rental housing in the market area and recent Figure 1-6: Office Space Occupancy Fall River and Submarket 2008 - 2022 absorption rates in comparable projects, an Source: Co Star Property Information Systems, March 2017; and FXM Associates. estimated 135 households that are able to afford up to $1,800 a month rent might be absorbed by additional rental development in a competitive rental property in this location each year.

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 13 As discussed above, the downtown and the waterfront are likely to have different residential products at varying price points. The information in Figure 1-5 indicates the demand for rental units at different price points in the combined areas; note that the different amenities and floor plans of the individual products will determine the price points in each area.

Office-using Sector Analysis

Office-using industries are a major employer in the City of Fall River and in the urban renewal areas. As shown in Figure 1-6, occupied office space is projected to increase in Fall River and in the Attleboro/Fall River/New Bedford Table 1-2: Projected Growth in Occupancy in Medical & Total Office Space in Fall River submarket overall. Over the next several Source: Mass DOL ES202 series; Co Star Property Information Systems; and FXM Associates. March 2017. years, projected demand could be absorbed by vacancies in existing office space, but if current recession, which the region and city survived The professional, technical, and financial trends continue, there will be opportunities comparatively well), that demand for office sectors comprise the largest share of demand for rehabilitation and possible new office space space is likely to continue to be positive for at for office space in Fall River, followed by social construction. In the absence of some dramatic least the next several years. assistance services, medical offices, and public local, regional, state, or national economic administration. The demand for medical office downturn (worse than the recent great space is projected to grow by 2.4% per year and

14 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 1. Executive Summary

REPLACE TEXT AND GRAPH ON PAGE 38 OF DOWNTOWN PLAN WITH:

A much smaller but growing sector in the City of Fall River is Educational Services. Some of this activity is also included in the office-using industries section below. Figure A-2 shows the total employment for city and county. Trends are positive for both, with a stronger R2 at the city level than at the county. all office space by 1.2% per year city-wide. (See areas. The difference in product – rehabilitation Table 1-2). versus new construction – will help determineFigure A-2ft how much and what type of office is captured The Health Care and Social Assistance sector is in each area. a large proportion of both downtown and city labor forces. Future growth in the downtown area would also depend on City choices regarding attracting more of this sector’s activity in Fall River to the downtown area. A little more than half of the employment in this sector is in Health Care, and most of that is in Ambulatory and Health Care Services. Almost all the Social Assistance activity is in Individual and Family Services.

A much smaller but growing sector in the City of Fall River is Educational Services. Some of this activity is also included in the office-using industries section below. Figure 1-7 shows the total employment for city and county. Trends are positive for both, with a stronger R2 at the city level than at the county.

As with retail and residential, this analysis Figure 1-7: Employment Trends in Fall River and Bristol County, 2005-2021: Educational Services calculates demand across both urban renewal Source: Co Star Property Information Systems, March 2017; and FXM Associates.

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 15 ORGANIZATIONAL ACTIVITIES ACTION IMPLEMENTATION TIMELINE Rebuild staffing levels in Planning Department to City Council Phase I meet projected workload. FRRA, Planning Board, Review progress and amend plan if necessary. Phase I, II, III City Council Apply for a MassDevelopment Transformative FRRA, Planning Board, Phase I Development Initiative (TDI) Fellow. City Council, FROED Implementation Plan REGULATORY ACTIVITIES The implementation of this plan requires actions by the FRRA, of course, but also requires public ACTION IMPLEMENTATION TIMELINE Adopt zoning changes, including design guidelines FRRA,, Planning Board, action from the Planning Board and the City Phase I Council, especially in the early years of the plan. and design review process. City Council Undertake design review of all parcels developed within the boundary of this urban renewal plan In order for each identified group to be an FRRA, Planning Board Phase I, II, III using the design guidelines identified in this plan effective partner, appropriate staffing and under Section 4.3 Design Guidelines. funding resources are required. While some of Initiate Home Rule legislation to secure enough FRRA, City Council, the capital costs for this project may be met on- and off-premise liquor licenses to meet future Phase I Licensing Board by grants, loans, or bond issues, in general, demand. operating costs for staff and other resources must be funded by the appropriate entity. The ACQUISITION ACTIVITIES FRRA and the City must provide the required ACTION IMPLEMENTATION TIMELINE resources to fulfill their respective roles in the Acquire properties identified for acquisition along FRRA Phase I implementation of this plan. The proposed the Main Street corridor to meet goals of this plan activities in this Plan will require an increase Acquire properties for the corridor plans that link FRRA Phase I, Phase II in staff for the City Planning Department. the waterfront and the downtown. Acquire properties identified for the smaller infill FRRA Phase II, Phase III Section 5. Time Frame contains a more detailed projects in the neighborhoods. look at the elements of this timeline; Section Continue acquisitions and project development for FRRA 6. Financial Plan Phase II, Phase III provides more information Main Street corridor. about funding needs and strategies.

16 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 1. Executive Summary

DEVELOPMENT ACTIVITIES ACTION IMPLEMENTATION TIMELINE Develop relocation plans and identify preferred developers for acquisitions. FRRA Phase I, II, III

PUBLIC INFRASTRUCTURE ACTIVITIES ACTION IMPLEMENTATION TIMELINE City Council, Department of Continue streetscape improvements within the downtown. Phase I Community Maintenance FRRA, City Council, Install wayfinding strategies for new traffic patterns, key locations within the downtown, and public Department of Community Phase I parking. Maintenance, Traffic Department, Planning Board FRRA, City Council, Implement recommendations of downtown traffic circulation and existing and projected parking needs. Department of Community Phase I, II Consider amending plan if acquisitions for right-of-way improvements are required. Maintenance, Traffic Department, Planning Board

PLANNING ACTIVITIES ACTION IMPLEMENTATION TIMELINE Undertake study for possible mixed use parking/residential and business/retail development at the Third Street FRRA Phase I Parking Garage and Third Street flat surface parking lot.

FRRA, Planning Board, City Undertake study of downtown traffic circulation and existing and projected parking needs. Phase I Council

Undertake further planning and implementation of improvements to the proposed Center Street/Harborside FRRA, City Council, Planning Phase I Park/Green Street/Bank Street Streetscapes corridor as link between the waterfront and the downtown. Department

Undertake study of possible development of a Historic Quequechan River Walking Trail, including public FRRA, City Council, Planning Phase I access to exposed river falls and banks, wayfinding signage, and interpretive panels. Department Evaluate need for acquisitions and development within the secondary corridors to meet goals of this plan. FRRA Phase III

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 17 Figure 2-1: Fall River, Mass in 1812 Source: Census Office, Part II. 1812 Map of Fall River, 1887

18 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 Section 2. Characteristics

2. Characteristics

PERCENTAGE OF 2.1 Description of the Plan URBAN RENEWAL AREA CITY OF FALL RIVER CITY Total Number of Area 438 ~19,991 2.2% Properties History and Development Total Acres ~198 ~24,182 acres 0.8% Total Valuation ~$225.9 million ~$ 6.0 billion 3.8% Fall River's western edge is defined by the Table 2-1: Downtown Urban Renewal Plan Urban Renewal Area Snapshot Taunton River. North Watuppa and South Watuppa bound it on the east. The Quequechan 1 (“Falling River”) River cuts across the lobe Company in 1821. These mills brought The textile industry in Fall River flourished defined by these bodies, flowing westerly from residents to the city and by 1830, Fall River’s through the 1800s and into the 1900s. In 1868, the ponds to the Taunton River over a course population had climbed from the two dozen with 500,000 spindles, it overtook Lowell, that once involved eight small waterfalls. Much families that were present at its incorporation to Massachusetts as the leading textile city in the 2 of Fall River’s history centers around its plentiful 4,159. These years saw the construction of Fall country. By 1872, Fall River had doubled this water resources and the industry they enabled. River’s early street grid, consisting of Bedford, capacity. Mill development and subsequent Central, Annawan (now Anawan), North Main, population growth tapered after this point but First populated by the Pokanoket Wampanoag and South Main streets3; the Fall River Branch hardly stalled. By 1876, the city produced one- tribe, Fall River incorporated in February Railroad, which connected the city to New sixth of all cotton and one-half of all print cloth of 1803. Fall River’s first textile mill, Globe Bedford and later to Bridgewater; and the Fall production in New England. President William Manufacturing, was built eight years later. More River Line, a luxurious steamship that provided Howard Taft attended the city’s “Cotton textile mills followed: Fall River Manufactory in service between Boston and New York City. Centennial” in 1911. The population at that 1813, Troy Cotton and Woolen Manufactory time was 119,295, and the ciy had 3,943,036 4 in 1813, and the Pocasset Manufacturing 1. Fenner, Henry Milne. History of Fall River Massachusetts. Fall spindles in operation. River Merchants Association, 1911. 2. ibid. 4. Fenner, Henry Milne. History of Fall River Massachusetts. Fall 3. Census Office, Part II. 1812 Map of Fall River, 1887. River Merchants Association, 1911

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 19 CHERR Y ST. Taunton River

ROUTE 79

INTERSTATE 195

HIGH ST.

GREEN ST. Public Library

POCASSET ST.

NORTH MAIN ST. Post Office

City Hall BEDFORD ST.

INTERSTATE 195 Justice PEARL ST. PLEASANT ST. Center 13TH ST.

SOUTH MAIN ST.

MORGAN ST. RODMAN ST. Legend YMOUTH AVE. PL Transportation Plan Boundary Center Parcels

Data Sources: Parcel Data from the City of Fall River Asses- HARTWELL ST. sor's Office; Imagery (C) Google

Figure 2-2: Fall River Downtown Urban Renewal Area

20 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 Section 2. Characteristics

In its tremendous success, the city was also very River, in two. Meanwhile, Route 79, which the downtown together slightly, but the area exposed. Other industries had not developed in runs roughly perpendicular to I-195, and is still largely fractured. Route 79, meanwhile, Fall River. In 1918, after World War I ended, roughly parallel to the Taunton River, separated is scheduled for major construction that will the US economy began to slow, then the residential communities located on higher remove the roadway's elevation, enhancing Great Depression hit. By 1940, the number ground from the waterfront. connection to the waterfront and freeing up of textile companies in Fall River had declined about ten acres of land for new development. to 17, which was 32 fewer than had existed in Today, Fall River's population is 88,712, This area will undergo significant change in the 1917. Smaller companies, focused on garment approximately 31,700 less than at its peak in coming years. production, partially offset this loss. These 1920. The median household income and level businesses survived until the 1990s, when of educational attainment for this population Location and Access globalization and foreign competition led them are both around half of what is seen statewide.6 to relocate or shut down.5 The city’s proud history is evident in the Fall River is located in southeastern numerous mill buildings that dot its landscape. Massachusetts, just north of Rhode Island, and In the decades following the decline of the Some of these buildings have been masterfully next to the Massachusetts towns of Westport, garment industry, a few large infrastructure adapted to new uses, but others remain partially- Dartmouth, Freetown, and Somerset. It is projects have drastically altered the city. occupied or vacant, absent a local economy that accessible by several major roadways: I-195, Between 1959 and 1966, the Federal and State is robust enough to support redevelopment. The which connects Fall River to Providence, RI; governments constructed Interstate 195 (I- city's housing stock – a majority of which was US Route 6, which runs from Providence, RI to 195) and Route 79. I-195 follows the path of constructed during the mill boom – is starting to Cape Cod; and State Routes 79 and 24, which 7 the Quequechan River, and its construction show signs of wear. I-195 affords great access to run north to Boston. involved the channelization and burial of the region, but inhibits movement locally. City most of the exposed waterway. This course Hall, which rests on top of this roadway, pieces This urban renewal area is located in the city's also split the city’s downtown, located in the 6. MassInc, Gateway Cities Profile: Fall River, 2008 downtown, which is close to, but not touching, area immediately adjacent to the Quequechan 7. UMass Dartmouth Public Policy Center and Representative Carole Fiola, Towards an Evidence-Based Housing Policy in Fall the banks of the Taunton River. Cherry Street 5. Koorey, Stefar, Fall River Revisited, Arcadia Publishing, 2012 River, MA, 2016. delineates the Area's northern boundary;

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 21 Morgan Street, generally, delineates its southern the downtown, including one-way patterns, are stop at 6PM and none run on Sundays. The boundary. The eastern edge of the Area is discussed further in Section 2. Eligibility. 2016 Regional Transportation Plan notes the defined by Plymouth Avenue and 13th Street; lack of a Fall River-Taunton intercity route; Pearl Street marks the western edge south of In addition to its roadways, the urban renewal presently, riders must travel via New Bedford. I-195, while Green Street marks the western area is also defined by its topography; land in edge north of I-195. Fall River descends at a moderate grade just In addition to these public bus options, the west of South and North Main streets. At best, city is also served by Megabus and Peter Pan. I-195 cuts through the center of the urban this terrain generates excellent views of the Megabus operates a route from Fall River to renewal area, dividing it into two approximately water from the downtown, but at worst, isolates UMass Dartmouth, Fairhaven/New Bedford, equal sections; one to the north and one to the the area from the rest of the city. Providence, RI, New Haven, CT, and New south. The roadway is below-grade in relation York, NY. Peter Pan offers service to Boston, to the downtown and the connection across it Transit Infrastructure and Service Hyannis, Newport and Providence, RI, and is provided by four at-grade overpasses. These New York, NY. are located at Milliken Boulevard, South Main Public transportation, while limited, is also Street, 3rd Street, and 4th Street. Fall River's There is no railroad infrastructure within the available. The Southeastern Regional Transit City Hall is located between South Main and urban renewal area, however, a state-owned rail Authority (SRTA) operates ten bus routes within 3rd Street, on a plaza situated directly over corridor is located immediately to the west. The Fall River and two intercity routes, one to the the interstate. I-195 ascends as it proceeds state-owned rail corridor does not currently have Swansea Mall, and a second to New Bedford. eastwards, and by Bow and 7th Streets, it is on passenger rail service or a passenger rail station, All buses leave from the newly-constructed the same plane as the surrounding area. The but rail service and two new rail stations are Louis D. Pettine Transportation Center, which only way to traverse it within the urban renewal being planned as part of the South Coast Rail is located off Borden Street, between Fourth area after this point is at Plymouth Avenue, Project. This future rail service would provide and Fifth. These buses provide reasonable which passes under the roadway 0.3 miles east commuter rail service connecting Fall River to coverage of the city geographically but hours of of the 4th Street connection. Circulation within Boston via the Middleborough/Lakeville Line operation could be improved; many bus routes in the first phase of the service, which is planned

22 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 Section 2. Characteristics

for completion in 2022. Two stations have been proposed for Fall River outside of, but near, the downtown urban renewal area.

Environmental, Natural and Cultural Resources, Regulated Areas

The urban renewal area was screened for the following environmental, natural and cultural resources, and regulated areas:

• Topography • Surface water resources • Other natural resources • Title 5 setback zone • Floodplains • Utilities

Figure 2-3: South Coast Rail Phasing Plan Source: http://www.massdot.state.ma.us/Portals/41/Docs/NPCPhasingPlanMap.pdf

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 23

Figure 1

Quequechan River

Quechechan River

Figure 2-4: Natural Resources

24 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018

Fall River Downtown Urban Renewal Plan Existing Conditions Report 6

Section 2. Characteristics

Section 3 Eligibility describes other conditions, underground throughout the urban renewal Massachusetts 310 CMR 10.58(2)(a)3 such as hazardous risk sites, historic properties, area, having been placed in a series of culverts “Where a river runs through a culvert more and Environmental Justice areas. when I-195 was constructed. (See Figure than 200 feet in length, the riverfront 2-4.) The falls are exposed in two locations: area stops at a perpendicular line at the upstream end of the culvert and resumes at Topography east of Ironworks Mill No. 6 and 7 and in the the downstream end.” The downtown urban renewal area sits above Courtyard of that complex. (See Figure 2-4). the waterfront with grades rising steeply from Floodplains the waterfront to North and South Main Other Natural Resources Streets. Most of the downtown is 100 feet or Despite the urban renewal area's proximity more above sea level and the waterfront, and As an urbanized area, the downtown urban to North and South Watuppa Ponds and the many of the streets are noticeably sloped, with renewal urban renewal area does not contain Taunton River, the elevation and topography of the exception of the area around City Hall and any significant natural resources areas. the area provides protection from most flooding. between Bedford and Pleasant Streets. (See As shown in Figure 2-5, just the western-most Figure 2-6). portion of the urban renewal area falls within Title 5 Setback Zone the High-Risk Coastal Area (VE) zone.

Surface Water Resources The area surrounding the Quequechan River is likely exempt from regulation by Massachusetts Utility Infrastructure The Quequechan River is the only water body Title 5 (The Massachusetts Rivers Protection within the downtown urban renewal area. Act Chapter 258 of the Acts of 1996) because Water and sewer service are available throughout The river flows in a northwesterly direction the river is in a culvert throughout most of the urban renewal area and are provided by the from South Watuppa Pond through the the urban renewal area. The statute which City of Fall River. Electric service is provided by downtown and into to the end of the Taunton provides guidance on the definition of a river National Grid. Natural gas service, provided by River at Mount Hope Bay at Heritage State Park/ and therefore applicability of the Rivers Act is Liberty Utilities, is available within the urban Battleship Cove. The river is almost entirely below: renewal area.

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 25 ST. Taunton River

ROUTE 79

INTERSTATE 195

HIGH ST.

GREEN ST.

POCASSET ST.

NORTH MAIN ST.

BEDFORD ST.

INTERSTATE 195 PEARL ST. PLEASANT ST.

13TH ST. Legend

VE: High Risk Coastal Area SOUTH MAIN ST. A: 1% Annual Chance of Flooding, MORGAN ST. no Base Flood Elevation RODMAN ST. X: 0.2% Annual Chance of

Flooding YMOUTH AVE. PL Plan Boundary Parcels Data Sources: Flood Data from the Federal Emergency Man- agement Agency (July 2014); Parcel Data from the City of HARTWELL ST. Fall River Assessor's Office; Base Map (c) Google

Figure 2-5: Flood Zones in the Urban Renewal Area

26 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 Section 2. Characteristics

2.2 Required Maps

Section 2.2 Required Maps contains all the maps of the project area mandated by 760 CMR 12.02(2). They are as follows:

• Boundaries of the project area (Figure 2.6) • Existing uses and the current zoning (Figures 2-7, 2-8, 2-9) • Proposed land uses, public improvements, and other activities (Figure 2-10, Figure 2-11 Proposed Zoning) • Parcels to be acquired (Figure 2-12) • Lots to be created for disposition(Figure 2-13) • Buildings to be demolished (Figure 2-14) • Buildings to be rehabilitated (Figure 2-14) • Buildings to be constructed (Figure 2-14)

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 27 The Plan Boundary includes the full right-of-way for all streets that define its borders.

Legend Plan Boundary

Data Sources: Esri, HERE, DeLorme, Intermap, increment P Corp., GEBCO, USGS, FAO, NPS, NRCAN, GeoBase, IGN, Kadaster NL, Ordnance Survey, Esri Japan, METI, Esri China (Hong Kong), swisstopo, MapmyIndia, © OpenStreetMap contributors, and the GIS User Community

Figure 2-6: Boundaries of the Project Area Sources: Esri, HERE, DeLorme, Intermap, increment P Corp., GEBCO, USGS, FAO, NPS, NRCAN, GeoBase, IGN, Kadaster NL, Ordnance Survey, Esri Japan, METI, Esri China (Hong Kong), swisstopo, MapmyIndia, © OpenStreetMap contributors, and the GIS User Community

28 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 Section 2. Characteristics

CHERR Y ST.

ROUTE 79

INTERSTATE 195

HIGH ST.

GREEN ST.

POCASSET ST.

NORTH MAIN ST. Legend BEDFORD ST. Residential Mixed Residential-Commercial

Commercial INTERSTATE 195 PEARL ST. Office PLEASANT ST.

Institutional 13TH ST. Government

Other Industrial SOUTH MAIN ST. Open Space MORGAN ST. Transportation and RODMAN ST. Utility Authorities

Parking YMOUTH AVE. PL Plan Boundary Parcels

Data Sources: Parcel Data from the City of Fall River Asses- HARTWELL ST. sor's Office; Imagery (C) Google

Figure 2-6: Boundaries of the Project Area Figure 2-7: Existing Uses

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 29 CHERR Y ST.

ROUTE 79

INTERSTATE 195 M

HIGH ST.

GREEN ST.

B-N A-2 WTOD

POCASSET ST.

NORTH MAIN ST. B-L

BEDFORD ST.

Legend CBD ST.

Multiple Family Residence (M) PLEASANT ST.

Apartment (A-2) CMD 13TH ST. Local Business (B-L) MD Neighborhood Shopping (B-N) SOUTH MAIN ST. INTERSTATE 195 Central Business (CBD) MORGAN ST. Commercial Mill (CMD) RODMAN ST. Medical (MD) Waterfront TOD (WTOD) Plan Boundary A-2 Parcels YMOUTH AVE. PL Data Sources: Parcel and Zoning Data from the City of Fall HARTWELL ST. River Assessor's Office; Imagery (C) Google

Figure 2-8: Current Zoning

30 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 Section 2. Characteristics

!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!! !!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!! !!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!! MD !!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!! !!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!! !!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!Neighborhood Shopping (B-N) !!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!! !!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!SOUTH MAIN ST. INTERSTATE 195 !!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!

!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!! !!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!! !!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!MORGAN ST. !!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!! !!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!! !!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!Commercial Mill (CMD) !!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!RODMAN!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!! ST. !!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!

Figure 2-9: Current Zoning including Arts Overlay District

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 31 CHERR Y ST.

ROUTE 79

INTERSTATE 195

HIGH ST.

GREEN ST. NORTH MAIN ST.

POCASSET ST.

BEDFORD ST.

PEARL ST. PLEASANT ST.

13TH ST.

SOUTH MAIN ST. INTERSTATE 195

Legend MORGAN ST. RODMAN ST. Mixed Residential-Commercial Proposed "Harborside Park" Plan Boundary Parcels YMOUTH AVE. PL Data Sources: Parcel Data from the City of Fall River Asses- sor's Office; Imagery (C) Google HARTWELL ST.

Figure 2-10: Proposed Uses and Public Park Improvement

32 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 Section 2. Characteristics

NORTH MAIN ST. !!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!! !!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!

!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!! !!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!! !!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!MORGAN ST. !!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!Central Business (CBD) !!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!! !!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!RODMAN ST. !!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!! !!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!! !!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!

Figure 2-11: Proposed Zoning

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 33 N-10-0017 INTERSTATE 195 N-10-0021 CHERR Y ST. N-10-0022 N-10-0019

HIGH ST. N-11-0060

GREEN ST.

N-09-0002 N-07-0018 N-09-0005 N-04-0029

POCASSET ST. N-06-0036

NORTH MAIN ST. N-06-0037

N-06-0023 BEDFORD ST. N-18-0016

INTERSTATE 195 I-09-0036 PLEASANT ST.

I-09-0074 13TH ST. I-09-0039 I-09-0009 SOUTH MAIN ST. I-09-0018

M-11-0002 Legend I-10-0002 Acquisitions I-09-0026 I-09-0024 Plan Boundary N-21-0005 Parcels YMOUTH AVE. PL I-16-0001 Data Sources: Parcel Data from the City of Fall River Asses- HARTWELL ST. sor's Office; Imagery (C) Google

Figure 2-12: Parcels to be Acquired

34 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 Section 2. Characteristics

N-10-0017

CHERRY INTERSTATE 195 N-10-0021 ST. N-10-0022 N-10-0019

N-11-0060 HIGH ST.

N-09-0002 N-07-0018 N-09-0005 N-04-0029

POCASSET ST. N-06-0036

NORTH MAIN ST. N-06-0037

N-06-0023 BEDFORD ST. N-18-0016

SOUTH MAIN ST. INTERSTATE 195 PEARL ST. I-09-0036 PLEASANT ST.

I-09-0074 13TH ST. I-09-0039 I-09-0009 I-09-0018 Legend M-11-0002 Lots for Disposition I-10-0002 RODMAN ST. Lots for Potential Reparcelization I-09-0026 I-09-0024 YMOUTH AVE. Plan Boundary N-21-0005 PL Parcels I-16-0001 Data Sources: Parcel Data from the City of Fall River Asses- HARTWELL ST. sor's Office; Imagery (C) Google

Figure 2-13: Lots to be Created for Disposition

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 35 N-10-0017 CHERR INTERSTATE 195 N-10-0021 Y ST. N-10-0022 N-10-0019

HIGH ST. N-11-0060

GREEN ST.

N-09-0002 N-07-0018 N-09-0005 N-04-0029

POCASSET ST. N-06-0036

NORTH MAIN ST. N-06-0037

N-06-0023 BEDFORD ST. N-18-0016

INTERSTATE 195 PEARL ST. I-09-0036 PLEASANT ST.

I-09-0074 13TH ST. I-09-0039 I-09-0009 Legend SOUTH MAIN ST. I-09-0018

Buildings to be rehabilitated MORGAN ST. RODMAN ST. M-11-0002 Buildings to be constructed I-10-0002 Potential municipal use I-09-0026 I-09-0024 Park to be constructed N-21-0005 Plan Boundary YMOUTH AVE. Parcels PL I-16-0001

HARTWELL ST. Data Sources: Parcel Data from the City of Fall River Asses- sor's Office; Imagery (C) Google

Figure 2-14: Buildings to be Rehabilitated and/or Constructed

36 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 Section 2. Characteristics

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 37 PROPERTY ASSESSED SIZE VALUE PLANNED PROPOSED LAND ESTIMATED PARCEL ID ADDRESS OWNER (ACRES) (2017) ACTIONS USE RELOCATION I-09-0009 308 South Main Street River Town Reality LLC 0.14 $561,100 2 businesses I-09-0024 350 Morgan Street VCR Enterprises LLC 0.35 $170,500 I-09-0026 390 South Main Street VCR Enterprises LLC 0.12 $246,000 1 business Almeida Nelson; Almeida I-09-0018 31, 33, & 47 Rodman 0.64 $314,100 1 business Ana P Antonio Costa Property I-09-0036 251 South Main Street 0.58 $389,800 2 businesses Management LLC I-09-0039 285 South Main Street Dosouto Nuno 0.32 $499,500 Rehabilitation, redevelopment I-09-0074 277 South Main Street Evelina LLC 0.13 $298,800 Acquisition, 1 business Fall River Roman Catholic I-10-0002 467 Spring Street 0.96 $983,900 Disposition Bishop of St Marys I-16-0001 427 Plymouth Avenue Patel Realty Inc 2.95 $1,206,000 3 businesses N-04-0029 289 Bank Street Lechan Harry M 0.10 $233,500 N-06-0023 38 Third Street JLD LLC 0.26 $356,200 N-07-0018 37 Purchase Street Hyland House Inc 0.27 $456,000 N-06-0036 Bedford Street MKM Management LLC 0.28 $178,200 Redevelopment N-06-0037 82 Troy Street People Incorporated 1.11 $318,300 Develop for open Acquisition space/recreation N-09-0002 238 Central Street Chodkowski Paul 0.16 $117,700 and/or or dispose of for Disposition redevelopment N-10-0017 164 Durfee Street Ishaq Faraz 0.13 $178,000 2 businesses Martins Teresa D; N-10-0019 120 Pine Street 0.13 $178,000 Paradise Stacy M Acquisition Parking N-10-0021 102 Pine Street Alexander William 0.13 $81,100 Travis Justin Louis A; N-10-0022 Pine Street 0.07 $79,400 Alexander Michelle Lee Transfer to N-11-0060 Central Street Fall River City Of 1.10 $195,800 Public park FRRA Table 2-2: List of Parcels for Acquisition

38 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 Section 2. Characteristics

PROPERTY ASSESSED SIZE VALUE PLANNED PROPOSED LAND ESTIMATED PARCEL ID ADDRESS OWNER (ACRES) (2017) ACTIONS USE RELOCATION Fall River Roman Catholic N-18-0016 403 Anawan Street 0.28 $608,200 Bishop of Rehabilitation, Massachusetts Electric Acquisition, N-21-0005 82 Hartwell Street 0.93 $403,300 redevelopment Co; c/o Property Tax Dept Disposition Redevelopment M-11-0002 34 Plymouth Avenue Samuels Realty Co Inc 0.51 $201,600 Develop for open Acquisition space/recreation N-09-0005 10 Durfee Street Mart Inc Midtown Motor 0.50 $917,730 and/or 6 businesses or dispose of for Disposition redevelopment Total 12.15 $9,172,730

TOTAL URBAN RENEWAL ACQUISITIONS AREA PERCENTAGE OF UR AREA Total Number of Properties 24 438 5.5% Total Acres ~12 ~198 6.1% Total Valuation ~$9.2 million ~225.9 million 4.06% Estimated Displacements* # of Businesses 18 # of Residential Units 0 Table 2-3: Snapshot of Parcels for Acquisition

*These estimates are based on a visual survey of the parcels to e acquired conducted in December 2017. Some parcels were not fully visible from public way. An internet search has been used to confirm the presence of existing businesses when that information is available. The number of residential units is an estimate based on the description of the land use in the City Assessors' database. See Section 10 Relocation for additional information about the relocation process and the building inventory and Appendix I Parcel Inventory for additional information about these parcels.

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 39 are almost entirely located in the western restaurants, and commercial-type spaces; North 2.3 Existing Land Use portion of the urban renewal area. Main Street is largely inhabited by office and institutional uses. It also revealed an increased The urban renewal area exhibits a diversity of As part of this planning effort, the consultant number of mixed-use properties, notably the land uses: residential, commercial, industrial, team conducted an independent inventory of Academy Building at the corner of South Main and institutional. uses downtown. This work, which was largely and Pocasset, and a series of smaller buildings motivated by a desire to catalogue vacancies on the Bedford Avenue/Pleasant Street corridor. In general, residential uses are clustered along within the urban renewal area, necessarily Further, it showed a decreased number of the northern edge of the urban renewal area and involved surveying uses. This inventory industrial uses in the downtown. The results of in a grouping within the southern quadrant. identified use as it related to the building's this analysis pertaining to vacancy are discussed Commercial parcels, in contrast, are located occupant. For instance, a commercial-type in Section 2. Characteristics. everywhere but these zones. These parcels do space with a social service tenant would be appear with increased density along South designated as institutional; a mill building Open Space and North Main Streets, where they loosely (industrial) occupied by a gym and offices would form a commercial corridor. Mixed-use parcels be designated as commercial. The inventory also With the exception of two plazas – both of are uncommon; those that do exist border took a more granular look at the downtown, which are less than 0.1 acres in size – and the residential and commercial parcels, producing enabling a more thorough picture of land use. Old Second Street Pedestrian Walkway, the Fall a gradient of use. River downtown urban renewal area is without On the whole, the resulting map reflects the land designated, public, open space (Figure 2-15). Around 22 of the 238 parcels in the urban use depicted in Figure 2-7, which was generated renewal area (10%) are classified as industrial. using ESRI ArcGIS and data provided by the This deficit within the immediate area is For the most part, these parcels lie in the eastern City. There are, however, a few differences: First, partially offset by a large number of parks in the portion of the area, concentrated along Bedford it shows that South Main Street and North surrounding region; as depicted in Figure 2-16, Avenue and Pleasant Street. Institutional uses Main Street have distinct character. South nearly all parcels within the urban renewal area Main Street is largely inhabited by retail, cafes, are within a five-minute walk of open space.

40 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 Section 2. Characteristics

The quality, distribution, and accessibility of moderate slope along the north side of Central health, and increase neighborhood safety. Green these spaces, however, must also be taken into Street towards the Taunton River. Thus, it open space has the added benefit of mitigating account. For example, park A, the outlying presents tremendous opportunity to enhance urban heat island effect and decreasing park closest to the southern-most portion of the connection between the downtown and stormwater runoff. Open space is also known to the urban renewal area, is now a paved parking waterfront areas. Acquisition of parcels along benefit the local economy by boosting property lot; park B is a gravel lot that is absent of any Central Street between Green and Durfee values, attracting and retaining residents, and furnishings save for a single trash can, and Streets for expansion of Harborside Park would increasing municipal revenues.1 For all these park C is just an expanded median strip. The significantly enhance both the physical and reasons, developing open space is a critical path parcels in the northern portion of the urban visual connection between the waterfront and in improving Fall River’s downtown. renewal area, which are near Battleship Cove the downtown, as well as provide open space for and Fall River Heritage State Park, are isolated nearby proposed residential development. from these amenities by limited crossings along Route 79 and a shift in elevation. The land between the Bank Street Armory and the Public Library presents great potential Though it is not categorized as such by the for providing public open space that could Fall River Tax Assessor's database, the urban supplement programming conducted by these renewal area does have one additional open two public institutions and enhance their space. This parcel, which is owned by the City, setting. Relegating this area to its current use is 200-feet wide and 1,000-feet long and is for parking would represent a significant missed referred to in Planning Department studies opportunity. as "Harborside Park." Apart from a series of sidewalks, it is without development. This Even if these outlying spaces were in good parcel is significant due to its large size, but also condition, Fall River’s downtown would still because of its position; located in the western- benefit from increased open space. Open space 1. BREC. "General Info". Accessed June 2, 2017. www.brec.org/ most tip of the urban renewal area, it runs at a helps develop community, improve public index.cfm/page/1808/n/153

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 41 CHERR Y ST.

ROUTE 79

INTERSTATE 195 "Harborside HIGH ST. Park" 1.1 ACRES GREEN ST. OWNER: CITY OF FALL RIVER Old Second Street Pedestrian Walkway POCASSET ST. OWNER: FRRA NORTH MAIN ST.

BEDFORD ST. Jerry Lawton Plaza 0.074 ACRES OWNER: CITY OF FALL RIVER INTERSTATE 195 PEARL ST. PLEASANT ST.

13TH ST.

Columbia Square SOUTH MAIN ST. 0.036 ACRES OWNER: CITY OF FALL RIVER MORGAN ST. RODMAN ST.

YMOUTH AVE. PL

HARTWELL ST.

Figure 2-15: Parks within the Urban Renewal Area

42 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 Section 2. Characteristics

Fall River Heritage Turner Playground CHERR State Park 1.9 ACRES Y ST. 2.0 ACRES

ROUTE 79

INTERSTATE 195 Ruggles Park HIGH ST. "Harborside 7 ACRES

GREEN ST. Park" 1.1 ACRES OWNER: CITY OF NORTH MAIN ST. No Name FALL RIVER 0.3 ACRES OWNER: CITY OF FALL RIVER POCASSET ST.

BEDFORD ST.

INTERSTATE 195 PEARL ST. PLEASANT ST.

13TH ST.

SOUTH MAIN ST.

A 0.13 ACRES RODMAN ST. OWNER: CITY OF FALL RIVER MORGAN ST. C B 0.16 ACRES A YMOUTH AVE. B PL OWNER: CITY OF FALL RIVER C 0.02 ACRES Griffin Park OWNER: CITY OF FALL RIVER HARTWELL ST. C/O PARK DEPT MACHADO 1.18 ACRES GREEN OWNER: CITY OF FALL RIVER

Figure 2-16: Parks within a Five-Minute Walk of the Urban Renewal Area

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 43 and hotels and motels. Residential ac- auto body shops are allowed by special 2.4 Current Zoning cessory uses are also allowed. The A-2 permit; and residential uses of any size district's other regulations are identical are excluded. The urban renewal area for the Downtown to those of the M-district: small retail • Local Business District (B-L) – With Urban Renewal Plan is composed of eight operations and funeral establishments the exception of kennels (which the B-L zoning districts: two that are residential, four must obtain a special permit. district allows by-right) and self-storage that are business, one that is industrial, and one • Central Business District (CBD) – This facilities (which the B-L district prohib- that promotes transit-oriented development. district allows high-density residential its), this district perfectly replicates the All eight districts permit religious, educational, uses (20 units and above) and most permissions set forth by the B-N for and municipal uses, bicycle and pedestrian retail, restaurant, and consumer service utilities, telecommunications, public paths, and pedestrian parks and plazas by-right, uses; with the exception of bars (which service, office, and industrial uses. The and allow radio and television transmission require a special permit), kennels, and B-L district diverges from the B-N stations with a special permit. Apart from these body art establishments (which are district in respect to residential, auto- similarities, they differ in the following ways: both prohibited), these uses are allowed motive, and arts uses; the B-L district • Multiple Family Residence District by-right. Automotive sales, car washes, permits low-density residential uses and (M) – This district permits single- to parking lots, radio and television stu- sheds, requires a special permit for gas six-family residences and all related dios, offices, call centers, and visual and stations, and excludes all arts uses. accessory uses. Small retail operations performing art spaces are also permitted. • Medical District (MD) – This district and funeral establishments are allowed • Neighborhood Shopping District (B- is much more restrictive than the other by special permit. N) – This district's zoning restrictions business zones (CBD, B-N, and B-L) in • Apartment District (A-2) – This dis- are identical to those of the CBD with the urban renewal area. This zone only trict allows all types of residential uses, the following exceptions: auto repair permits small retail operations, service including senior congregate housing, stations, gas stations, self-storage facili- businesses, restaurants, banks, ATMs, boarding houses, bed and breakfasts, ties, and artist lofts are allowed by-right; parking lots, radio and television stu-

44 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 Section 2. Characteristics

dios, offices, research and development One parcel with in the urban renewal singular regulation is consistent across the industrial spaces, and data processing area – American Printing Company/ urban renewal area, and no district has identical and storage centers. Senior congregate Metacomet Mill site on Anawan Street regulations to another. This high variability housing is the only residential use al- – lies within this district. is eased by the fact that districts with similar lowed, but it requires a special permit. dimensional regulations are generally adjacent In addition to these zoning districts, the urban to one another. For example, the CBD abuts the • Commercial Mill District (CMD) – renewal area has one overlay district: This district is the only industrial zone B-L district. Both districts share a minimum lot within the urban renewal area. This dis- • Arts Overlay District (AOD) – This area of 5,000-square feet, a minimum frontage trict allows most retail, restaurant, and district promotes the expansion of art and width of 50-feet, and minimum side and consumer service uses (bars and body art and culture in Fall River. Within the rear yards of 10-feet. Similarly, the B-L, M-D, establishments require a special permit; urban renewal area, it overlays the entire and CMD, which all touch, share a maximum veterinary establishments, kennels, and B-N and WTOD district and portions building height of 80-feet and 6-stories. funeral establishments are prohibited), of the A-2 district, the B-L district, All eight zones share parking and loading and most industrial uses (indoor re- CBD, and CMD. This district permits requirements. The number of spaces required is cycling and water-dependent uses are high-density residential development dictated by use, however, so districts that allow prohibited). Residential uses larger than and allows a subset of institutional and uses with significant parking requirements (for one-unit are allowed by special permit. commercial uses. Notably, it is the only district which permits bars by-right. example, retail businesses and hospitals) will • Waterfront and Transit Oriented De- Arts uses like art schools, dance and have more parking than districts where uses velopment District (WTOD) – This photography studios, carpentry shops, with less intensive parking requirements are district allows high-density residential visual and performing arts spaces are dominant. development (four units and above), permitted in this area. institutional, recreational, and commercial uses, as well as industrial uses Dimensional standards vary by district, and in existence prior to September 2011. while many districts share regulations, no

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 45 the alternative – the incorporation of this area also prohibits art uses (with the exception of 2.5 Proposed Zoning into the B-L district – as the CBD will better visual and performing art spaces), however, facilitate the development of the downtown since this area falls within the AOD, a pathway District Boundaries into a higher-density, mixed-use area. The exists for their inclusion, should interest arise. B-L district, in contrast, permits low-density This conversion is similarly easy in terms of While they are positioned in a manner that residential uses, sheds, and kennels. dimensional regulations. B-N is more restrictive minimizes disruption, justification for eight than the CBD so any structure currently different zones within the 180-acre urban In practice, this modification is minor; this allowed will conform to the new standards. (See renewal area is challenging. The two residential change would result in the inclusion of multi- Table 2-4 for further detail.) districts (M and A-2) are well-defined from each family dwellings 20-units and above, and the other, as the M district functions as a medium- exclusion of automotive repair stations/garages, Separately, the City should also consider density residential area and the A-2 district gasoline filling stations, and auto body and re-zoning the area of the downtown that is functions as a high-density residential area. paint shops and self-storage facilities. The CBD currently within the CMD. Unlike the proposed Both districts work to ease the transition from the downtown to the lower-density residential DIMENSIONAL RESTRICTION B-N CBD areas that surround it. The CMD, WTOD, and Minimum Lot Area (Square Feet) 10,000 5,000 the AOD all similarly advance unique purposes. There is, however, a high-degree of consistency Minimum Frontage and Width (Feet) 100 50 in use regulations between three of the business Minimum Front Yard (Feet) 35 12 districts (CBD, B-L, B-N). Minimum Side Yard (Feet) 35 10 Minimum Rear Yard (Feet) 25 10 To this end, this Plan recommends that the Maximum Building Height (Feet) 45 45 or 70 area in the downtown that is currently within the B-N district be incorporated into the Maximum Lot Coverage - - adjacent CBD. This option is preferred over Table 2-4: B-N and CBD Dimensional Restrictions

46 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 Section 2. Characteristics

modification to the B-N district, which was buildings within the CMD are not used for existing structures will be allowed to adhere to largely motivated by redundancy, this change industrial purposes (which would become the restrictions associated with the CMD. is desirable because the use regulations non-conforming uses with re-zoning to the associated with the CMD are not consistent CBD) but are rather used for institutional or One potential disadvantage of this change is with a vibrant downtown. For example, this office purposes, or are vacant. The changes to that it could dissuade further development. zone allows vehicle-intensive, low-density dimensional restrictions are similarly easy, as the A primary concern is environmental uses like distribution centers, warehousing, CBD is generally more lenient than the CMD. contamination. While the consultant team's and wholesaling, while requiring that all Two exceptions to this are the Minimum Front survey revealed just one brownfield (the New residential uses obtain a special permit. Yard requirement, which would increase from England Gas site), the area's industrial history Further, the CMD district within the 10- to 12-feet, and the Maximum Building suggests that further contamination may exist. downtown is isolated between three business Height, which would increase from the greater If this is the case, the heightened costs associated districts (CBD, B-L, and M-D), which will of 80-feet or six stories to 45-feet. In this case, with remediation to a standard acceptable for result in the creation of a small industrial DIMENSIONAL RESTRICTION CMD CBD enclave over the long-term, disrupting the continuity of the area. Minimum Lot Area (Square Feet) 10,000 5,000 Minimum Frontage and Width (Feet) 100 50 This Plan suggests that the land currently Minimum Front Yard (Feet) 10 12 within the CMD be incorporated into the Minimum Side Yard (Feet) 10 10 adjacent CBD, as the CBD district best aligns Minimum Rear Yard (Feet) 10 10 with the long-term development goals for this 80 feet (or 6 stories, area. As with the proposed transition from Maximum Building Height 45 or 70 feet whichever greater) the B-N district to the CBD, this change Maximum Lot Coverage - - should not be difficult. The land use map (see Figure 3-1) generated by the consultant Table 2-5: CMD and CBD Dimensional Restrictions team during their inventory shows that the

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 47 residential and office uses (relative to industrial) Permit the following excluded uses from the • (a) Such boutique manufacturing shall may serve to prohibit future development. existing table of uses: not exceed three thousand (3,000) Existing building typologies, to a lesser extent, square feet in area and shall be directly • Residential Uses: may also be a concern if they are determined related to the principal permitted retail to be unfit for desired uses. For these reasons, (i) Senior congregate Housing, use; and the City should carefully study the area before including, but not limited to, assisted living facilities • (b) All manufacturing activity, including making its decision. the storage of all equipment, materials Exclude the following permitted uses from the and products, shall occur inside the existing table of uses: Permitted Uses building; no outside storage of any kind • Automotive and Related Uses: is permitted; and A second test to apply to the urban renewal • (c) Only manufacturing processes that area's zoning concerns the use regulations and (a) Automotive Sales, indoor and outdoor are not offensive with regard to noise, dimensional restrictions associated with each (e) Car Wash light, dust and odors, and which have zone; in other words, whether each district will the same or lesser impact that the prin- support the development of the downtown in a In addition, the City should consider the cipal retails use are permitted; and manner consistent with this Plan. The permitted introduction of light-manufacturing uses to uses within each District are generally in the CBD. For language, the City can look • (d) The manufacturing activity shall keeping with the goals of this Plan. One notable to South Norwalk, Connecticut's "boutique occupy an area of no more than sixty exception to this is the CBD. Due to this, and manufacturing" use for ideas. It reads: percent (60%) of the gross floor area that only one area of the city has this zoning, occupied by the associated retail es Boutique manufacturing shall be allowed as tablishment; and the following changes are recommended by this an accessory use to a permitted retail use, Plan. subject to compliance with the following • (e) The manufacturing process is prin- requirements: cipally artisan or fabrication by hand,

48 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 Section 2. Characteristics

and shall not include mass production consistent with the Institute of Transportation or assembly line operations; and Engineers (ITE) Parking Generation manual. Fall • (f) The manufacturing operations will River, for the most part, bases its requirements not generate excessive traffic volumes on occupancy, while the ITE Manual uses or truck traffic in excess of that typi- square footage. At a minimum, the City should cally occurring in the adjacent district modify its parking requirements so that they are or neighborhood; all loading activity normalized by square footage. This conversion shall occur during daytime hours only. will allow for a more uniform comparison moving forward. Language like this will support additions to the vibrancy of the downtown and Fall River's new "Make it Here" brand.

Parking Requirements

Throughout the planning process, Fall River community members told the consultant team that they felt there was a parking shortage downtown. As part of its response to these concerns, the consultant team undertook an analysis of the parking supply and potential demand. (See Section 3. Eligibility for the methodology and results.) Regarding regulations, this analysis revealed that Fall River's parking requirements are not in a format

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 49 Figure 2-17: Fall River Downtown Urban Renewal Area and Main Street as a connective spine through the downtown

50 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 Section 2. Characteristics

character of buildings. Five different character 2.6 Urban Design types have been identified in this urban design Characteristics analysis as subareas with their configuration and identity. These categories are listed and further The urban renewal area comprises parts of three described below, and they are represented in different neighborhoods: Lower Highlands, Figure 2-18, Urban Design Character Areas. Bank Street, and Corky Row. They come 1. Main Street together at the banks of the historic Quequechan River, now I-195. These neighborhoods are 2. Highway commercial areas separated by South Main Street towards the 3. Commercial corridors south and Highland Avenue towards the north 4. General residential areas of the I-195, with I-195 itself acting as an east- west dividing line between neighborhoods. 5. Parks and open spaces I-195 passes through Downtown Fall River and effectively divides Downtown and the City to north and south portions.

The urban renewal area comprises different urban morphologies that range from Main Street (a retail spine), to residential areas, highway industrial areas, commercial corridors, and historic mill lands which were located close to I-195 and major arterials. Each of these areas has their design character, which is closely related to land use, density, age, and architectural

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 51 1. Main Street with stone masonry and brick in the downtown. Within the downtown, Main Street has a well- Main Street is the main connective spine defined street wall with many of the buildings running north-south through Downtown built to the lot line. This street wall character and the entire city. It is divided into north fades near the residential neighborhoods with and south segments with I-195 intersecting it the introduction of the strip mall-style parking in the center of the downtown. In addition, lot and building setback from Main Street. the character of Main Street changes as it cut sacross different neighborhoods to connect to In addition to retail and restaurants on the South Main Street with its ground floor retail and upper floor commercial and office uses. the downtown. Main Street is a two- to three- ground floor, and commercial and office uses on story neighborhood retail street that connects the upper floors, Main Street is also dotted with various neighborhoods with a combination of many institutional uses, like the Bristol County service, community retail, and low- to medium- Court House and City Hall, with its unique density multifamily housing. As Main Street position on top of I-195. approaches the downtown, its character changes with commercial, office, and institutional uses and ground floor retail.

Building heights along Main Street vary from two to three stories in the residential neighborhoods to three to six stories in the downtown. The architecture style and quality also change from more traditional wood frame residential construction in the neighborhoods, to a blend of historic and modern architecture

52 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 Section 2. Characteristics

Main Street General Residential Area Commercial Corridor Highway Commercial Area

Figure 2-18: Urban Design Character Areas

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 53 2. Highway Commercial Areas Pocasset Street, is underutilized and partially vacant with tenants like Workout World. Davol I-195 cuts across downtown with on-and off- Mill No. 1 and Davol Mill No. 2 located on ramps, creating a distinct variety of parcels, that 427 Plymouth Avenue are other mills which take advantage of the location and proximity to are on the National Historic Register but are the highway. As the regular street grid breaks underutilized with a lack of strong creditworthy down near the highway, these parcels and areas tenants that can spur reinvestment in these are also larger and odd-shaped. The proximity properties. These historic mills, with their high Ironworks Mill No.7 to the highway and adjacent on- and off -ramp ceiling heights and sturdy masonry or brick Source: https://commons.wikimedia.org/wiki/File:APC_Mill_No7.jpg infrastructure are not conducive to residential architecture, offer a unique opportunity for uses. The parcels primarily developed as reinvestment and redevelopment in the urban commercial, office, or short-term paid parking. renewal area. Some of the parcels in this area are currently underutilized, and partially- or fully-vacant with dilapidated building conditions, a lack of good tenants, and profitable paid parking lot Davol Mill No. 1 Source: https://commons.wikimedia.org/wiki/File:Davol_Mills_1.jpg uses. The development in this area has mainly occurred in the form of redeveloped mills or suburban retail/commercial use surrounded by a parking lot.

There are a number of historic mills within the urban renewal area which are notable for their architecture and historic character. Ironworks Davol Mill No. 2 Mills No.6 and No.7 Complex, located on Source: https://commons.wikimedia.org/wiki/File:Davol_Mills_Fall_River.jpg

54 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 Section 2. Characteristics

Ironworks Mill No.7 Source: https://commons.wikimedia.org/wiki/File:APC_Mill_No7.jpg

Davol Mill No. 1 Source: https://commons.wikimedia.org/wiki/File:Davol_Mills_1.jpg Building conditions and vacancies in the highway commercial area

Building conditions and vacancies in the highway commercial area

Davol Mill No. 2 Source: https://commons.wikimedia.org/wiki/File:Davol_Mills_Fall_River.jpg

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 55 3. Commercial Corridors

The urban renewal area has a major commercial corridor bound by Bedford Street and Pleasant Street, between 13th Street and Troy Street. This commercial area is mainly characterized by automotive-related businesses, like new and used car dealerships, automotive body shops and repair garages, with some regional shopping destinations, like the Portuguese grocery store. These commercial businesses take advantage of proximity to I-195 and major arterials, like Robeson Street and Bedford Street, and provide a sense of vibrancy and activity during the day, which is not reflected in other parts of the downtown. Bedford Street commercial corridor Long, narrow blocks (approximately 150 feet by 450 feet) that have businesses and high parking requirements create fragmented street wall environments in the commercial corridor between Pleasant and Bedford Streets. These environments have parking lots fronting the streets.

56 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 Section 2. Characteristics

4. General Residential Areas

As I-195 and Main Street define the structure of the downtown, residential blocks fill in the areas undefined by highway commercial uses and the Main Street commercial spine. A typical residential block is composed of two- to three -story wood-framed houses with single-family and multifamily housing density. Many lots are vacant or have been used for parking, which creates an inconsistent street wall along the streets. Various institutional, recreational, and open spaces use, like churches and playgrounds, create a sense of neighborhood.

Residential area north of Downtown with view up the Cherry Street

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 57 5. Parks and Open Space Street Pedestrian Walkway, connecting Sullivan Safety Drive/City Hall to Borden Street/Justice Center The urban renewal area contains only a handful districts, and the untapped potential represented Residents and visitors perceive the urban renewal of public open spaces. Fall River Justice Center by significant unused space immediately area as unsafe in the evening. Many parcels in has a public plaza at the intersection of South surrounding the street and first floor levels of the residential areas either have parking uses Main Street and Borden Street, and another City Hall. The urban renewal area also lacks on them, or they lack the infill development to small plaza is located at the intersection an open space connection to the waterfront help provide “eyes on the street.” Restaurants of Anawan Street and South Main Street. with transportation infrastructure separating and bars on Main Street help generate a sense Harborside Park is a passive open space located the downtown and the waterfront assets. of safety during evening hours. Commercial adjacent to Fall River Housing Authority’s There is great potential for development of this activity within the Bedford Street/Pleasant Heritage Heights complex. connection along the Central Street/Harborside Street commercial corridor stops in the evening Park/Green Street/Bank Street corridor. In hours, however, and large empty parking lots Apart from these public open spaces, there are addition, the downtown-waterfront connection fronting the Bedford Street and Pleasant Street private open spaces associated with St. Mary’s might be enhanced by "daylighting" portions of reduce the perception of safety in this area. Cathedral that provide much needed visual the Quequechan River. In the short term, the relief to users south of I-195. Some portions of focus should be on public access to small sections the urban renewal area are within a five-minute of the river's exposed falls east of Ironworks walking distance of city and neighborhood Mills No. 6 and No. 7 and in the courtyard of parks, like Kennedy Park in the South, Ruggles that complex. The Quequechan River, which Park in the North, and waterfront parks in west. historically connected the downtown area with the waterfront, has been built over and flows Despite these neighborhood and city parks, underneath some of the existing buildings. A downtown lacks a vibrant and multifunctional potential day-lighting of the Quequechan River public open space within its core area, with could be used to create a stronger connection to the notable exceptions of the Old Second the waterfront from downtown.

58 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 Section 2. Characteristics

Jerry Lawton Plaza Fall River Justice Center Plaza

Heritage State Park "Harborside Park" St. Mary's Cathedral Ruggles Park Old Second Street Pedestrian Walkway

Figure 2-19: Public and private open spaces close to Downtown Fall River Branch Street park

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 59 CONDITION POSSIBLE SOLUTIONS ACTIVE STOREFRONTS • Create a program to educate landlords and existing tenants about the benefits of maintaining and upgrading their storefronts. • Encourage uses that promote transparency, and dynamic and active storefronts. Some storefronts along Main Street and within the downtown are vacant, boarded up, or have uses that lack transparency with blinds drawn or blank walls. This • Promote creative storefront activation strategies by encouraging short-term rental of vacant spaces to artists, art-related businesses, and creative creates a perception of inactivity, discourages pedestrian activity, and affects the viability of retail. entrepreneurs in order to reduce vacancy and provide income to landlords.

• Actively discourage blank walls and encourage unobstructed windows along Main Street and other designated commercial corridors. BUILDING CONDITIONS • Provide design guidance and financial assistance to homeowners to renovate and update their buildings (e.g., create a Façade Improvement Program, offer Building age and conditions of disrepair in older residential neighborhoods affect rentability and the owner’s financial capability to rehabilitate, maintain, and upgrade building improvement loans). deteriorated buildings. • Promote historic façade preservation and the creative and innovative redevelopment of historic properties for reuse.

PARKING REQUIREMENTS • Undertake a detailed parking demand and supply study to understand the existing inventory and future demand scenarios. • Streamline parking requirements for new developments by taking into consideration future trends in mobility such as self-driving cars and shared There is a perception that there is not enough parking available for downtown and Main Street businesses. In addition, it is also understood that there are informal transportation modes. arrangements between different landowners and businesses to share existing parking spaces. Furthermore, zoning for certain land uses requires higher parking • Encourage alternative parking arrangements in new development proposals to promote development in downtown. ratios, which discourages development as it depresses the development yield in Fall River’s challenging market conditions. • Create and maintain a formal parking exchange where business owners are encouraged to exchange and share their excess parking capacity on a short- or long-term basis so that parking capacity is fully used and parking demand data is collected for future decision-making. PARKING LOTS • Adopt guidelines for the design of parking lots and their edges that promote the creation of green areas and landscape buffers to screen the view of parked Asphalt-covered parking lots and lack of vegetation contribute to water runoff and ‘heat island’ effects in dense areas of the neighborhood, while detracting from the vehicles from the street and introduce design amenities such as sitting areas, benches, or trees along sidewalks. visual image and perception of safety.

STREETSCAPE IMPROVEMENTS • Increase the provision, maintenance, and upkeep of sidewalks and street trees. Build sidewalks in places where they are missing and add extensions to widen stretches of sidewalk that prevent universal access. Narrow or broken sidewalks, a scarcity of trees, and a lack of landscaping diminish the quality of the walking experience in some areas. They restrict access and • Establish streetscape design guidelines for Main Street and throughout the downtown which unify the storefront design, streetscape design principles, way- contribute to a perception of neglect. finding and signage to create a cohesive identity for Main Street and the downtown.

• Improve and upgrade public open spaces and plazas in unison with streetscape design guidelines. WATERFRONT ACCESSIBILITY • Establish a trolley/transit-based connection to waterfront attractions from various locations in the downtown. • Develop special pedestrian-friendly streetscape, crossings, signage and wayfinding along Pocasset Street, Central Street and Columbia Street to clearly The Fall River waterfront, with many attractions, is currently not clearly accessible from downtown. The waterfront is currently separated from downtown due to the- identify them as connections to waterfront. remnants of Route 79, the Braga Bridge, and associated transportation infrastructure, and the physical topography. • Explore additional opportunities to connect to the waterfront from Metacomet Mills, the Ironworks Mills No. 6 and 7 complex, and underneath the Braga Bridge infrastructure. • Develop waterfront-to-downtown linkage with enhancements and expansion of Harborside Park and along the Central/Green/Bank Street corridor to the Purchase Street neighborhood, including a focus on the 64 Durfee Street proposed residential development, and on to Bank Street Armory/Public Library block. DOWNTOWN ACTIVATION & PROGRAMMING • Create a Main Street and Downtown Business Improvement District to change the perception of the area and to market this area as an unique destination to live, work, and play. Although a hub of activity for businesses, Main Street and downtown are devoid of activity after office hours. This lack of activity creates a perceived lack of safety • Promote a mix of uses with market-rate residential homes to attract households to live close to or on Main Street. and further depresses investment from private developers for future economic development as the demand and rents remain stagnant. • Support cultural and arts events to increase the attractiveness of downtown as a potential residential location. • Promote Main Street-focused events like a farmers market, block parties, and outdoor events and concerts. Table 2-5: Urban Design Conditions and Possible Solutions

60 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 Section 2. Characteristics

CONDITION POSSIBLE SOLUTIONS ACTIVE STOREFRONTS • Create a program to educate landlords and existing tenants about the benefits of maintaining and upgrading their storefronts. • Encourage uses that promote transparency, and dynamic and active storefronts. Some storefronts along Main Street and within the downtown are vacant, boarded up, or have uses that lack transparency with blinds drawn or blank walls. This • Promote creative storefront activation strategies by encouraging short-term rental of vacant spaces to artists, art-related businesses, and creative creates a perception of inactivity, discourages pedestrian activity, and affects the viability of retail. entrepreneurs in order to reduce vacancy and provide income to landlords.

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 61 3. Plan Eligibility

consistent with previous planning efforts at the municipalities made the planning decisions and 3.1 Findings local, regional, and state levels. undertook the clearance themselves.

The Department of Housing and Community The conditions required by Chapter 121B are Today’s focus is on creating incentives for the Development (DHCD) must be able to known as conditions of "blight." The common private market to invest. These incentives can make certain findings with respect to this understanding of blight includes settings such include changes to the regulatory environment, redevelopment plan under Chapter 121B, as broken or boarded-up windows, and/or a investments in public infrastructure, and/or Section 48. These findings and their applicability lack of maintenance, such as peeling paint or help with financing. to the plan are summarized in Table 3-1. unmowed lawns. The purpose of this Plan is to identify the The supporting information for each of these For the purposes of an urban renewal plan, current conditions that prevent such private findings is presented in the remainder of this blight is defined as those conditions that cannot investment, determine the needs and goals of section, with additional information in Sections be addressed by the private market alone – in the smaller community of this area and the 2 and 4. Supporting technical memoranda are other words, public action is needed to help impact they expect for the larger community as provided in the Appendices. address those conditions. a whole, and define those actions that will create incentives for the private market, over time, to These findings are related to the conditions of the The origins of urban renewal lay in large projects, address the existing conditions. urban renewal area relative to the need to invoke funded by the federal government, in the 1950s the intervention of a redevelopment authority and 1960s. These projects cleared large areas This urban renewal area is a Decadent Area, as under the enabling legislation. This section will of land, demolishing buildings and relocating defined by Chapter 121B. The content of this provide evidence that this urban renewal area people from what were seen as overcrowded section supports this finding with evidence that is a decadent area, that the activities proposed and inadequate housing units. In many meets the requirements of Chapter 121B and by this Plan are justified by the conditions, communities, this type of clearance did not 760 CMR 12.00, the regulatory requirements and that the recommendations of this plan are welcome or even involve public input. Instead, of DHCD.

62 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 3. Plan Eligibility

REQUIREMENTS OF CHAPTER 121B, SECTION 48 APPLICABILITY TO THE AREA RELEVANT SECTION (a) the project area would not by private enterprise alone and without either government subsidy or the The private market has been unable to fully address the Section 3. Eligibility exercise of governmental powers be made available conditions that lead to a finding of a decadent area. for urban renewal. (b) the proposed land uses and building requirements in the project area will afford The proposed zoning changes and public infrastructure maximum opportunity to privately finance urban improvements provide incentives for the private market to Section 4. Objectives renewal consistent with the sound needs of the invest in the urban renewal area. locality as a whole. The financial plan provides estimates for the projects that are (c) the financial plan is sound. expected to be undertaken by the FRRA, based on the list of Section 6. Financial Plan parcels for acquisition. (d) the project area is a decadent, substandard or The project area is a Decadent Area. Section 3. Eligibility blighted open area. This Urban Renewal Plan (1) conforms to the previous planning efforts conducted by the municipality, and (2) indicates the (1) Section 3. Eligibility (e) that the urban renewal plan is sufficiently boundaries of the area, the anticipated land acquisition and (2) Section 2. Characteristics and complete, as required by section one. rehabilitation of structures; the proposed public improvements; Section 4. Plan Objectives and zoning and other planning changes, including proposed land uses, maximum densities, and building requirements. A statement regarding the FRRA's intent to provide a relocation (f) the relocation plan has been approved under plan in conformance with the requirements of M.G.L. Chapter Section 10. Relocation chapter seventy-nine A. 79A and relevant federal law.

Table 3-1: Findings Required by DHCD

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 63 CONDITIONS OF A DECADENT AREA APPLICABILITY TO THE AREA SECTION 90% of the building in the area are pre-1978 and 76% are pre-1930. Existence of buildings which are out of repair, Older building stock signifies the potential presence of hazardous Section 3. Eligibility: Building and physically deteriorated, unfit for human materials such as lead paint and asbestos. Older commercial buildings Site Conditions habitation, or obsolete may not be suitable for efficient redevelopment for current uses. Certain sites have been identified as having had a release of hazardous Existence of buildings which are in need of Section 3. Eligibility: Building and materials. The status of these sites vary and, as is common in urban major maintenance or repair Site Conditions areas, not all may have been identified. Much of the real estate in recent years has been sold or taken for nonpayment of taxes or Properties under tax liens exist throughout the area. Section 3. Eligibility: Tax Liens upon foreclosure of mortgages Buildings have been torn down and not Many vacant lots are used for parking. Current market conditions, Section 3. Eligibility: Building and replaced and under existing conditions it is including the prevalence of existing vacancies, do not provide enough Site Conditions: Infrastructure improbable that the buildings will be replaced value for redevelopment of these sites. The area has significant economic challenges, including the presence Section 3. Eligibility: Building and Substantial change in business or economic of one or more Environmental Justice populations. Significant Site Conditions; Demographics, conditions vacancies exist in current buildings. Real Estate Market Conditions

Inadequate light, air, or open space Few open, green spaces exist within the area; some parts of the area Section 2. Characteristics: Land have no green space within a quarter-mile walking distance, even when Use, Section 3. Eligibility: Land Excessive land coverage including parks outside the boundary. Coverage

Diversity of ownership, irregular lot sizes or As shown in the fit studies provided in Section 4. Plan Objectives, Section 2. Characteristics: Land obsolete street patterns make it improbable parcel assembly may be needed for the redevelopment of certain sites Use, Section 4. Plan Objectives, that the area will be redeveloped within the area. Parcels are small and few have similar ownership. Appendix I. Parcel Inventory

Table 3-2: Applicability of the Definition of Decadent Area to the Existing Conditions

64 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 3. Plan Eligibility

buildings will be replaced, or because The determination that this urban renewal 3.2 Determination of of a substantial change in business or area is a decadent area rests on three sets of Conditions: Decadent Area economic conditions, or because of conditions present within the boundary: inadequate light, air, or open space, • The physical conditions of the area, in- or because of excessive land coverage Definition and Applications cluding site conditions, such as flooding or because diversity of ownership, and the presence of environmental con- irregular lot sizes or obsolete street taminants; infrastructure, both public Definition of a Decadent Area patterns make it improbable that the and private; and building conditions, area will be redeveloped by the ordinary including historic building styles and Chapter 121B defines a Decadent Area as: operations of private enterprise, development patterns or by reason of any combination ...an area which is detrimental to of the foregoing conditions. • The demographics as those demograph- safety, health, morals, welfare or sound ics are related to both the housing mar- growth of a community because of the ket and the job market existence of buildings which are out Application of the Definition • The economic trends and market condi- of repair, physically deteriorated, unfit tions that encourage or discourage in- for human habitation, or obsolete, Table 3-2 breaks this definition apart and vestment within the urban renewal area or in need of major maintenance or demonstrates how the existing conditions within repair, or because much of the real the urban renewal area prevent the private estate in recent years has been sold market from addressing those conditions. The Building and Site Conditions or taken for nonpayment of taxes or remainder of this section provides the evidence upon foreclosure of mortgages, or to support these conclusions. Building Conditions because buildings have been torn down and not replaced and under existing Appendix I Parcel Inventory contains data from conditions it is improbable that the the City's Assessors Office on a parcel-by-

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 65 parcel basis. In addition to data on the age, size, ownership, condition and valuation of the buildings and parcels, the inventory includes photographs of the parcels identified for acquisition in Section 2 Characteristics.

Downtown Inventory

As part of this planning effort, the consultant team conducted an independent inventory of uses downtown. This inventory involved an A vacant, but maintained, property on Hartwell A vacant, and largely abandoned, property on Bank Internet survey of occupancy in non-residential Street. Street. properties, followed by an extensive site walk are vacant (500,294-square feet). This is a look abandoned and amplify the perception for verification. As noted inSection 2.3 Existing compelling total, that has serious repercussions that the area is unsafe. While the condition of Land Use, the uses identified during this effort on the economic strength and the character of the Hartwell Street property is preferred, both are largely consistent with those documented in the downtown. instances are undesirable. the Tax Assessor's Database. In total, there are 22 properties downtown There are 52 properties in the downtown that In addition to identifying uses, this inventory that are completely vacant. Combined, they are partially-occupied. Combined, the vacant documented the locations of fully- and partially- represent 330,097-square feet. These vacant square footage in these properties is estimated vacant properties within the downtown. The properties are in varying states of disrepair. to be around 170,198-square feet, of which results of this work indicate that nearly 27% Some, like the Hartwell Street property in the 73,620-square feet is located on ground floors of the square footage in non-residential, non- center column, are relatively well-maintained. and 96,578-square feet is located on upper mixed-use buildings in the urban renewal area Others, however, like the Bank Street property, floors. An overwhelming majority of the vacant

66 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 3. Plan Eligibility

ground floor square footage is for office space near Hartwell Street, and a lack of vacant The high instance of vacancy is made worse by uses; the majority of vacant upper floor square properties along the Bedford/Pleasant Street the fact that many occupied spaces downtown footage is for mixed office and retail uses. (See corridor, there is nothing particularly significant have windows that are partially or completed Table 3-3 for further detail.) about the locations of these vacant properties; covered by blinds, opaque panels, or large they simply map to the locations of commercial posters. While these spaces largely appear as Figures 3-1 and 3-2 depict land use and fully areas within the downtown and are evenly occupied, window obstruction of this kind -vacant properties, and the locations of fully- distributed. reduces "eye on the street," a well-established and partially-vacant properties, respectively. tenet of neighborhood safety, and something Other than a density of fully-vacant properties

EST. VACANT GROUND EST. VACANT UPPER EST. TOTAL VACANT EST. TOTAL OCCUPIED TOTAL INVENTORIED USE FLOOR FLOOR SQUARE FOOTAGE SQUARE FOOTAGE SQUARE FOOTAGE (SQUARE FEET) (SQUARE FEET) Office 47,805 8,495 56,300 474,765 531,065 Retail 13,712 27,622 41,333 234,152 275,485 Mixed Office and Retail 10,973 38,821 49,794 148,565 198,359 Mixed Office 1,131 7,791 8,921 44,170 53,091 Mixed Retail - 13,850 13,850 457,258 471,108 Fully Vacant Buildings 135,256 194,841 330,097 N/A 330,097 Total Square Footage 208,876 291,419 500,294 1,358,910 1,859,205 Percent of Total Inventoried Square Footage 26.9% 73.1% 100%

Table 3-3: Vacancy Totals from the Downtown Inventory. These numbers ignore vacancies in mixed-use and non-office, non-retail commercial properties.

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 67 CHERR Y ST.

ROUTE 79

INTERSTATE 195

GREEN ST.

Legend POCASSET ST.

NORTH MAIN ST. Single-, Two-, and Three-Family Residential Multifamily Residential (4+ Units) BEDFORD ST. Mixed Residential-Commercial Retail INTERSTATE 195 PEARL ST. Commercial SOUTH MAIN ST. PLEASANT ST.

Mix of Commercial Uses 13TH ST. Office Institutional Industrial MORGAN ST. Transit RODMAN ST. Parking Completely-Vacant Plan Boundary Parcels YMOUTH AVE. Data Sources: Inventory by Consultant Team; Building Data PL from the City of Fall River Assessor's Office; Imagery (C) HARTWELL ST. Google

Figure 3-1: Downtown Inventory - Existing Uses

68 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 3. Plan Eligibility

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!!!!!! !!!!!! !!!!!! !!!!!! Completely-Vacanct !!!!!! !!!!!! Plan Boundary Parcels Data Sources: Inventory by Consultant Team; Building Data from the City of Fall River Assessor's Office; Imagery (C) Google

Figure 3-2: Downtown Inventory - Locations of Fully- and Partially-Vacant Buildings

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 69 that is already diminished downtown due to true strikingly high percentage (64.2%) of housing In addition to overall age, the percentage of vacancies. As it moves forward, the City should is renter-occupied. In general, renters have less buildings constructed prior to 1978 (when encourage the owners of ground floor businesses of an incentive (and are often not permitted)to lead paint was phased out) and the percentage to present a more public face to the street. This take on home improvement projects. This may of buildings constructed prior to 1980 (when Plan includes strategies regarding the activation mean that the building stock is not getting the asbestos was phased out) are important measures. of storefronts in Section 2.6 Urban Design. It is attention it needs to stay functional and safe Within the downtown urban renewal area, 90% worth noting, however, that the occupants may over the long term. of buildings were constructed before 1978, and have covered windows because their businesses, therefore may have lead paint, and 91% of for example a law office or a methadone clinic, NUMBER % OF TOTAL buildings were constructed before 1980, and require privacy. Over the long-term, the City Total therefore may have asbestos. These percentages 478 100% should work to ensure that uses like these are Buildings are striking; they indicate both potential health located on upper floors. Pre-1930 361 75.5% concerns (particularly for children under age Buildings six) and an increased cost associated with the 432 90.4% Building Age Pre-1978 redevelopment of the property if remediation is Buildings 437 91.4% necessary. Pre-1980 Just over 75% of the buildings in the downtown urban renewal area were built Table 3-4: Building Age before 1930, during Fall River's mill boom. ACRES % OF TOTAL This construction plays a significant role in All Parcels 198.2 100.0% defining the character of the downtown, Roads - 42.2 - 21.3% however, as the 2016 Towards and Evidence- Parking and Driveways - 54.1 - 27.3% Based Hosing Policy in Fall River document Built Area Existing Buildings - 49.6 - 25.0% notes, this older housing stock is prone to Unbuilt Area 52.3 26.4% structural deficiencies. Further, city-wide, a Table 3-5: Land Coverage

70 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 3. Plan Eligibility

Land Coverage in Figure 2-5, just the western-most portion of Though far from comprehensive, this review the urban renewal area intersects a flood zone. does suggest a persistent problem within the Land coverage is the amount of land that is region that at best, threatens transportations occupied by a building or by a paved surface, The urban renewal area occasionally suffers and at worst, poses significant safety risks. such as a parking lot or driveway. As the from flash flooding, most recently in March CLIMATE CHANGE numbers in Table 3-5 indicate, Fall River's 2010, September 2012, and August 2015. downtown is overwhelmingly covered by Flash flooding is typically caused when large The Massachusetts Climate Change Adaptation built surfaces, including buildings, parking quantities of rain fall within a short time period. Report identifies the threats to natural systems lots, driveways, sidewalks, and roadways. This Fall River's 2012 floods, for example, were from climate change, including threats to arrangement results in very little vegetated caused when 2.48-inches of rain fell in a twelve the forests within the floodplains, reduced open space, which is a problem both from hour period; its 2015 floods were caused by precipitation flows during projected summer a public amenity standpoint, and from an 0.9" in a thirty-minute period. In urban areas droughts, and increased precipitation flows environmental standpoint, as a dearth of open dominated by impervious cover like Fall River, during winter floods.2 The report projects that space contributes to the urban heat island effect this water is unable to infiltrate the ground drier, hotter summers will reduce the quality of and stormwater runoff. Both of these issues are surface and consequently collects and begins the water and that warmer, wetter winters may discussed further in respective sections later in moving rapidly downhill. This type of flooding increase stormwater runoff from rain and shift this document. is extremely dangerous as it is difficult to predict the timing and impact of flood events.3 and moves extremely quickly.

Flooding Photos captured of the 2010, 2012, and 2015 floods show water at the intersection of The elevation of the downtown urban renewal Plymouth Avenue and Rodman Street, in the 2. Executive Office of Energy and Environmental Affairs and area relative to its surroundings provides 1 the Adoption Advisory Committee, The Massachusetts Climate southeast corner of the urban renewal area. Change Adaptation Report, September 2011. protection when the nearby Taunton River and 3. Executive Office of Energy and Environmental Affairs and Watuppa Ponds breach their banks; as depicted 1. Root, Jon. Flash flooding in Fall River, September 2012. https:// the Adoption Advisory Committee, The Massachusetts Climate storify.com/jqroot/flash-flooding-in-fall-river Change Adaptation Report, September 2011.

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 71 CHERR Y ST.

ROUTE 79

INTERSTATE 195

HIGH ST.

GREEN ST.

POCASSET ST.

NORTH MAIN ST.

BEDFORD ST.

INTERSTATE 195 PEARL ST. PLEASANT ST.

13TH ST.

SOUTH MAIN ST.

Legend MORGAN ST. RODMAN ST. Built Before 1930 Built During or After 1930 Plan Boundary

Parcels YMOUTH AVE. PL

Data Sources: Parcel and Zoning Data from the City of Fall HARTWELL ST. River Assessor's Office; Imagery (C) Google

Figure 3-3: Buildings Built Before 1930

72 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 3. Plan Eligibility

CHERR Y ST.

ROUTE 79

INTERSTATE 195

ST.

GREEN ST.

POCASSET ST.

NORTH MAIN ST.

BEDFORD ST.

INTERSTATE 195 PEARL ST. PLEASANT ST. Legend 13TH ST.

Built Before 1978 (Building may SOUTH MAIN ST. have lead and/or asbestos)

MORGAN ST. Built Between 1978 and 1979 RODMAN ST. (Building may have asbestos) Built During or After 1980 Plan Boundary Parcels YMOUTH AVE. PL Data Sources: Parcel and Zoning Data from the City of Fall HARTWELL ST. River Assessor's Office; Imagery (C) Google

Figure 3-4: Buildings Built Before 1978 and 1980 egend 1arldgnersec R FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 73 0 1835; 1836; 1840; 1842; 1843; 1844; 1845; 1850; 1856; 1860; 1865; 1870; 1871; 1874; 1875; 1876; 1880; 1881; 1882; 1883; 1887; 1890; 1892; 1894; 1895; 1896; 1897; 1898; 1899; 1900; 1901; 1902; 1903; 1904; 1905; 1906; 1908; 1910; 1911; 1912; 1914; 1915; 1916; 1917; 1918; 1920; 1921; 1922; 1923; 1924; 1925; 1926; 1928; 1930; 1931; 1937; 1938; 1940; 1945; 1946; 1950; 1960; 1961; 1962; 1965; 1970; 1971; 1975; 1976; 1977 1978; 1979 1980 1981 1984 1986 1987 1988 1989 1990 1994 1995 1996 1999 2001 2004 2006 2007 500 250 0 500 Feet

Figure 3

Mid-Town Motor Mart

Fire Department Headquarters

38 Corneau/ 31 Seventh New England Gas Company

240 Hartwell Street

Figure 3-5: Hazardous Materials Sites

74 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018

Fall River Downtown Urban Renewal Plan Existing Conditions Report 8

! ! 3. Plan EligibilitMaple St y

! Walnut St St ! ! Mount St

Doctor ! Pear ! Hope Bay ! ! June St ! Locust St

ol St nforth St t anover St ol St ow e St Cherry St H

St Da Hathaway t Dav S Hom

Mead

May S ! ! House r N Dav e Church Of t John n ! i Battleship Cv Durfee St t verly St Grove St ! AscensionW Young S St Rock St Harbor Purchase St ! Be Elm St ! h Pine St Ruggles C House Lower Highlands g en i Linden St N Main St Park tr Historic H Cherry St al Cataract Water StMill St S Green St Downtown Fall! ST79 t District Engine River Historic !Franklin St Anawan St ST79 5 District ! Company ! Central St Robeson St ! Ban k St Granite Seabury St Battleship Cv St Central t S

Congregationh ¦¨§195 t 7 Pocasset St Borden Ogrady St Tremont St Oak St Canal St 5 Church Orange St N 2nd St tBuilding Pl S Rowe an w ¦¨§195 Columbia St a 3rd St Davis St n Ford St A Anawan St N Frontage Rd 138 Bedford St ST ! ! Thurston St Ferry St Troy St Berryman 6th St Canal St St St Academy t Corneau 7th St Milliken Blvd 9th St

Building 8th St

10th St 3rd St 6-7 11th St ! Pearl St Borden St Plain S P 12th St leasa Columbia St St. Mary’s nt S t 13th St Spring St Church t ! 14th St Merchant St S n o 6 7 6 i n Corky Row Grant St U 15th St Front St Historic 16th St Mulberry St William St Hunter St District Brow PlymouthWordell Ave St 17th St St 4th St Washington St Rodman St

SS Main St Wade St o ! Division St t u S Hunter St t l h t l S M e t S o r w 81 d g t ST 2nd St r an r 3 5th St a St Bradford H ST81 Buffington Marble Ave Cottage St Park St John St Kennedy 7 Park

Whipple St Forest St Ridge St Quequechan Park St Branch St Nashua St Plymouth Ave eterans River V PlymouthAveDove MemorialMiddle Dr St Lowell St

St r Lonsdale St Lawrence 7-6 St Figure 3-6: Historic Resources Source: MACRIS, National Park Service

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 75

Fall River Downtown Urban Renewal Plan Existing Conditions Report 9

Hazardous Risk Sites Gas Company site and the Fire Department the certified rehabilitation of income-producing Headquarters. The site with conditions placed certified historic structures such as commercial, Data sources reviewed to identify potential upon its use is located at 38 Corneau/31 industrial, or rental residential buildings. hazardous materials and environmental risk Seventh Street. Properties also qualify for Federal grants for sites within the urban renewal area include historic preservation, when funds are available. the Environmental Protection Agency’s (EPA) Historic Register Properties Owners of private property listed in the Comprehensive Environmental Response, National Register are free to maintain, manage, Compensation, and Liability Information or dispose of their property as they choose The downtown urban renewal area includes System (CERCLIS) GIS database and provided that no Federal monies are involved. historic resources that are listed on the National Massachusetts Department of Environmental Register of Historic Places (National Register), Protection (MassDEP) databases. There are eight properties within the urban which is administered by the National Park renewal area that are individually listed on the Service. The National Register is the official The listed sites in the downtown urban renewal National Register of Historic Places (see Figure Federal list of districts, sites, buildings, area (see Figure 3-5) include two Tier II sites (an 3-6): structures, and objects which are significant EPA designation), two activity and use limitation in American history, architecture, archeology, • Belmont Club/John Young House sites (AUL), and one additional site with engineering, and culture. conditions placed on its use. Eight additional • Cataract Engine Company #3/GAR sites have been classified as A2 (a permanent Building This listing of properties requires that there is solution has been achieved; contamination has consideration of the property status in planning • James D. Hathaway House not been reduced to background). for Federal, Federally-licensed, and Federally- • Andrew Borden Building/JJ Newberry assisted projects. Nationally listed properties The Tier II sites within the urban renewal area • Central Congregational Church are also eligible for tax provisions; owners of are 240 Hartwell Street and the Mid-Town properties listed in the National Register may • St. Mary’s Roman Catholic Church Motor Mart (which is also classified as Tier be eligible for a 20% investment tax credit for ID). The AUL sites include the New England

76 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 3. Plan Eligibility

• Academy Building/Nathaniel Briggs The Braga Bridge, Route 79, and a state-owned All streets within the urban renewal area have Block Borden rail corridor are immediately west of the sidewalks, with nearly all having sidewalks on • Church of Ascension/First Congrega- downtown urban renewal area. Urban arterial both sides of the street. Marked crosswalks are tional Church corridors include the following streets: located at almost all intersections. There are no dedicated bicycle facilities such as bike lanes or There are also six national historic districts • Second Street pathways within the urban renewal area. located within the urban renewal area: • Third Street The downtown street network is primarily American Printing – Metacomet Mill, Corky comprised of one-way streets, a result of Row, Downtown Fall River, Lower Highlands • Fourth Street narrow rights-of-way and traffic and on-street Historic, South Main Street Area, Union • Seventh Street parking demands (see Figure 3-7). This one- Mills, and Durfee Mills districts. There are 173 • Bedford Avenue way network has the disadvantage of being properties within those districts, such as the • Borden Street inefficient for local trips, is less supportive of Bank Street Armory and U.S. Custom House the retail district, and results in higher traffic and Post Office, that are not individually • Central Street speeds and reduced traffic and pedestrian listed, but contribute to the district’s historic • Columbia Street safety. Wayfinding within the downtown is also designation. • Durfee Street lacking, which further complicates travel within the one-way network, particularly for first-time • Hartwell Street Infrastructure visitors to the downtown. • North and South Main Streets

Roadway and Pedestrian Infrastructure • Pleasant Street Parking Infrastructure • Rodman Street Roadway and pedestrian infrastructure within • South Frontage Road Parking infrastructure is critical to the function the urban renewal area includes Interstate of Fall River’s downtown transportation system. I-195 and an extensive local street network. • Troy Street The downtown urban renewal area is served by

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 77

Figure 3-7: Circulation

78 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018

Fall River Downtown Urban Renewal Plan Existing Conditions Report 11

3. Plan Eligibility

565 spaces 945 parking demand -380 parking deficit 820 spaces 1210 parking demand -390 parking deficit

350 spaces 400 parking demand -50 parking deficit 1,110 spaces 745 parking demand +365 parking surplus 145 spaces 130 parking demand +15 parking surplus

1,980 spaces (includes Pearl St Garage) 2,315 parking demand -335 parking deficit 665 spaces 595 parking demand +70 parking surplus

Figure 3-8: Parking Supply and Demand

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 79

Fall River Downtown Urban Renewal Plan Existing Conditions Report 12 multiple surface parking lots, on-street parking, could increase to approximately 7,380 spaces, Parking Demand Methodology and two parking structures, Third Street Garage with a resulting parking deficit of 1,680 spaces. and Pearl Street Garage. (Pearl Street Garage The urban renewal area was divided into seven is located outside the urban renewal area but Observations of parking utilization, however, sub-areas. Fall River Assessor's data was used to serves buildings within the urban renewal area.) indicate that there are only acute parking determine total finished floor area per building Total parking supply (excluding parking areas or shortages, limited to specific uses, properties, or use for each subarea. Building uses were field driveways for less than five vehicles) within the times of day. The lack of an area-wide parking verified to confirm use as feasible. Minimum downtown area is approximately 5,700 spaces. shortage, in spite of the calculated parking parking generation rates were applied to This is comprised of approximately 1,000 on- deficit, suggests that downtown buildings are building uses based upon the ITE Parking street spaces, 4,400 parking lot spaces, and 300 not fully used and the residential population Generation manual and other parking demand garage spaces (see Figure 3-8). has low per capita level of car ownership. The research specific to urban areas. The following lack of significant supply of structured parking parking generation rates were applied to each of Based upon the building area and uses in in the urban renewal area also contributes to the the following building use types: the urban renewal area, the downtown is parking demand deficit. Limited transit services slightly underserved by parking supply. This and lack of downtown goods and services imply • One-, two-, and three-family residential: assessment is based upon minimal standard that future residential populations will likely 0 parking demand (parking lots and parking generation rates which indicate that remain car-dependent and will contribute driveways for 1-3 family homes were the downtown has a demand for approximately towards parking demand growth in the urban not inventoried and do not contribute 6,340 parking spaces to serve those existing uses. renewal area. Revitalization within this area to supply; parking demand is presumed Compared to the existing parking supply, there is likely to contribute to parking demand and to be met on site) is a deficit of 640 parking spaces in the urban may increase pressure to expand surface parking • Multifamily Residential (4+ units): 1.0 renewal area. This parking demand figure does resources. spaces per dwelling unit not account for building space that is vacant. • Warehouse: 0.5 spaces per 1,000 sf Assuming 100% occupancy of those currently • Office: 2.0 spaces per 1,000 sf vacant spaces, downtown parking demand

80 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 3. Plan Eligibility

Figure 3-9: Downtown Urban Renewal Area

• Judicial Center: 2.0 spaces per 1,000 sf • Auto Service: 3.0 spaces per 1,000 sf • Recreation Center: 2.0 spaces per 1,000 sf • Library: 2.0 spaces per 1,000 sf • City Hall: 2.0 spaces per 1,000 sf • Bank: 2.0 spaces per 1,000 sf • Retail: 3.0 spaces per 1,000 sf • Restaurant/Bar: 5.0 spaces per 1,000 sf Table 3-6: Demographic Data: Population and Households Compared • Church: 6.0 spaces per 1,000 sf Source: Nielson Segmentation & Market Solutions, 2016 and FXM Associates

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 81 The parking generation rates are generally equal updated by sources and algorithms proprietary to grow less than 1%, compared to 2.2% for to or less than parking requirements of Fall to Nielsen. Bristol County and 3.4% for the state. River’s zoning for the same uses. For example, The estimated 936 households in 2016 in Fall River’s CBD requires 5.0 spaces per gross Population and Households square feet of office space and retail space. The the urban renewal area experienced a slight CBD also requires 1.0 parking space per 3 seats loss in the decade between 2000 and 2010. As shown in Table 3-6, the 2016 estimated in a restaurant or bar, this requirement would Households in the urban renewal area had small population of the downtown urban renewal likely greatly exceed the demand generation rate gains since 2010 and are projected to grow area is 1,611. This represents about 2% of of 5.0 spaces per 1,000 square feet. faster than population rates, exceeding those of the population of the city. The urban renewal the city but less than in the county and state area has lost population since 2010 (-0.7%), by substantial margins. Average household size Demographics as did the city (-0.7%), while Bristol County in the downtown urban renewal area is smaller has grown by slightly less than 1.6%, and the than in any of the other three areas shown in The urban renewal area encompasses the state of Massachusetts by about 4%. In fact, the the table. downtown area approximately surrounding urban renewal area also lost 3% of its population I-195 from Plymouth Avenue on the west to the between 2000 and 2010, and the city lost 3.4% Household incomes are strikingly different Route 79 interchange on the east. A polygon, of its population, which was a time period of between the urban renewal area, the City of shown in Figure 3-9, encompasses this area and growth for both Bristol County (2.5%) and Fall River, Bristol County, and the state. As defines the area for demographic and business the state (3%). These numbers indicate that shown in Table 3-7, the median income for the data reported from the subscription data service, Fall River is lagging both the county and state downtown (almost $20,000) is substantially The Nielsen Company, Segmentation and in terms of population growth, which is key to lower than that for the city ($34,000), and is less Market Solutions. The Nielsen data are 2016 economic growth. Projections for the next five than one-third the median income for the state estimates based on the latest US population, years are not much better for the downtown (almost $70,000). Table 3-6 also shows that an according to Nielsen, and economic censuses urban renewal area and city, with both projected estimated 64% of downtown urban renewal area households and 39% of city households

82 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 3. Plan Eligibility

live on less than $25,000 a year. Such an income level is true for only 24% of county households and 20% of state households. Poverty rates for families in the urban renewal area and city are similarly high: 40% and 21%, respectively, compared to 10.5% in the county and 8.5% in the state. An estimated 2% of downtown households and 4% of city households have incomes over $150,000, compared to the county’s 11% and state’s 17%. (Table 3-13 in the Business Characteristics section provides more detail on wages at the city-, county-, and state-levels.)

Workforce Characteristics

The data in Table 3-7 show that education levels in the urban renewal area are very low: 8% have a college degree, and 39% have no high school diploma. The city has slightly higher educational levels, with 28% lacking a high school diploma and 14% with a college degree. The county has somewhat higher levels: 25% Table 3-7: Workforce Characteristics of its residents have a college degree, and 17% Source: Nielson Segmentation & Market Solutions, 2016 and FXM Associates

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 83 CHERR Y ST.

ROUTE 79

INTERSTATE 195

HIGH ST.

GREEN ST.

POCASSET ST.

NORTH MAIN ST.

BEDFORD ST.

INTERSTATE 195 PEARL ST. PLEASANT ST.

13TH ST.

SOUTH MAIN ST.

Legend MORGAN ST. RODMAN ST. Income Income and Minority Plan Boundary

Parcels YMOUTH AVE. PL

Data Sources: Environmental Justice Data from MassGIS; HARTWELL ST. Base Map (c) Google

Figure 3-10: Environmental Justice Communities

84 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 3. Plan Eligibility

have not completed high school. This contrasts MEAN EJ CRITERIA POPULATION % POPULATION IN EJ with the state, where 10% of the population EJ CRITERIA IN BLOCK GROUPS 2010 BLOCK GROUPS over age 25 have not completed high school, Fall River 1.29 88,857 66.7% and 40% have a college degree. Brockton 1.34 93,810 96.8% Over 40% of workers in the downtown urban Lawrence Minority 2.27 76,377 100.0% - Income - renewal area and the city have white collar jobs. Lowell English 1.46 106,519 87.6% The proportion of blue collar workers are similar New Bedford 1.81 95,072 69.6% to the county, but higher than the state. One- Taunton 1.44 55,874 23.6% third of the urban renewal area's workers are employed in the Service industry. Most workers Table 3-8: Environmental Justice Criteria in Comparable Municipalities within the four areas work in the private sector. Source: EJ_2010_municipal_stats.xls; Executive Office of Administration and Finance, Office of Geographic Information (MassGIS), http://www.mass.gov/anf/research-and-tech/it-serv-and-support/application-serv/office-of-geographic-information-massgis/ Forty-three percent (43%) of the households in datalayers/cen2010ej.html, last accessed January 17, 2017. the urban renewal area have no vehicle. This is over twice the city’s vehicle ownership level of 20% and almost four times the county’s 11% Environmental Justice Communities The Massachusetts Executive Office of and state’s 12%. Travel times to work for those Energy and Environmental Affairs' (EEA) in the downtown urban renewal area and city The downtown urban renewal area is entirely Environmental Justice Policy is intended to are shorter than for the county and state: 24 and covered by environmental justice (EJ) areas help address the disproportionate share of 26 minutes, respectively, compared to 30 and (see Figure 3-10). This includes an area in the environmental burdens experienced by lower- 31 minutes at the county and state levels. western urban renewal area that is minority- income people and communities of color who, and income-based and an area at the eastern at the same time, often lack environmental end of the downtown that is income-based. assets in their neighborhoods. The Policy is designed to help ensure their protection from environmental pollution as well as promote

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 85 community involvement in planning and environmental decision-making to maintain and/or enhance the environmental quality of their neighborhoods.

The Commonwealth of Massachusetts defines an EJ population as “those segments of the population that [the Executive Office of Environmental Affairs] has determined to be most at risk of being unaware of or unable to participate in environmental decision-making or to gain access to state environmental resources”.4

To be considered an EJ neighborhood, a census block group must meet one or more of the following criteria:

• 25% or more residents are foreign- born; or • 25% or more residents are minority; or • 25% or more households qualify as English-Isolated, meaning that any 4. Executive Office of Environmental Affairs, Massachusetts Environmental Justice Policy, October 9, 2002, p5. Accessed Table 3-9: Housing Characteristics January 17, 2017. Source: Nielson Segmentation & Market Solutions, 2016 and FXM Associates

86 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 3. Plan Eligibility

householder over 14 years of age speaks a non-English language and also has difficulty speaking English; or • Median annual household income is at or below 65% of the statewide median income. In 2010, the year of the last U.S. Census, this threshold was $40,673.5

MassGIS provides a table of the 2010 environmental justice populations, based on the 2010 U.S. Census. The information in Table 3-8 was extracted from that data. Figure 3-10 shows that the entire downtown urban renewal area meets the EJ qualifications described earlier; 90.1 acres qualifies due to income criterion and 108.1 acres qualifies due to both income and minority criteria.

Table 3-10: Business Profile - Downtown Urban Renewal Area Source: Massachusetts Department of Labor and Workforce Development, ES202 Reports, 2015

5. Executive Office of Environmental Affairs, Massachusetts Environmental Justice Policy, October 9, 2002, p5. Accessed January 17, 2017.

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 87 Real Estate Market Conditions Housing

Table 3-9 summarizes housing characteristics within the urban renewal area, the city, the county, and the state. The great majority, 90%, of downtown urban renewal area residences are renter-occupied, higher even than the 64% of Fall River residents who rent. In the county, the picture is different: 63% of units are owner- occupied and 37% are rented, which is very close to the state’s proportion of 62% owner- occupied and 38% rented. Average length of residence is comparable: 20 years compared to 21 in the city, 20 in the county, and 19 in the state. Length of residence for renters is almost the same in each area (between 9 and 10 years).

The median value of owner-occupied structures in the downtown urban renewal area is just over Table 3-11: Business Profile - Fall River Source: Massachusetts Department of Labor and Workforce Development, ES202 Reports, 2015 $200,000, while the estimate for the city is a little over $240,000, for the county $287,000, and for the state, $360,000. The proportion of structures valued at less than $100,000 in the

88 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 3. Plan Eligibility

downtown area (10%), is twice that of the state (5%).

Over half the housing stock in the urban renewal area and City of Fall River was built before 1939. Both the county and state’s median year in which structures were built is 1961, with approximately a third built before 1939.

Plan Area Economy: Business Characteristics

Data in Table 3-10 show the business profile of the downtown urban renewal area. The downtown urban renewal area held an estimated 627 establishments with about 3,800 employees and $594 million in business sales in 2016.

The Healthcare and Social Assistance industry is Table 3-12: Business Profile - Comparison the largest employer in the urban renewal area, Source: Massachusetts Department of Labor and Workforce Development, ES202 Reports, 2015 with Healthcare employing the most people and producing the largest amount in sales (over $70) million. The Healthcare sub-sector is composed of ambulatory health care services, hospitals (2),

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 89 and nursing and residential care facilities. The Social Assistance sub-sector includes services for the elderly, persons with disabilities, and “other individual and family care services.”

Table 3-11 shows the city of Fall River business profile.

Second to the Healthcare industry is the Professional, Scientific, and Technical Services industry, which employs 16% of the urban renewal area’s workers and accounts for $121 million in sales, 20% of the Area’s total. Wholesale Trade, which has only 1% of the area’s jobs, dominates sales, with over $206 million, 35% of the total sales in the urban renewal area. These companies are merchant wholesalers in durable and non-durable goods.

Table 3-13: Average Annual Wages Retail accounts for relatively little, 7%, of Source: Massachusetts Department of Labor and Workforce Development, ES202 Reports, 2015 downtown employment.

The Construction industry, while not a major employer, is worth a note, since almost half these establishments are small Specialty Trade

90 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 3. Plan Eligibility

Contractors. The Accommodation and Food There is more Healthcare activity across all Services sector is also of interest. The large three categories (establishments, employees, majority of both employment and sales is in the and sales) in the city than in the urban renewal Food Services and Drinking Places sub-sector, area and more Social Assistance activity in the and most of these are full-service restaurants. downtown urban renewal area. The Retail Trade industry, as noted above, has a smaller share of Some of the patterns in the downtown urban employment in the downtown urban renewal renewal area exist in the city data: the Healthcare area than in the city. and Social Assistance industry is the largest employer in both by a considerable margin. The Employment is important to an area’s economy, Wholesale Trade industry, a relatively minor but so are wages. Table 3-13 compares average employer, accounts for almost a third of the annual wages for city, county, and state in downtown's and city’s sales.

There are, however, substantial differences, which are better shown in Table 3-12, comparing the relative shares of business industries in the downtown with those in the City of Fall River.

The Professional, Scientific, and Technical Services industry has a larger share of economic activity in the urban renewal area than it does in the city: quadruple the share of employees, triple the share of establishments, and twice the share of sales.

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 91 2015, the last year for which complete data are located in a residential district in the northern-most portion of the urban renewal area. Three of available. these are classified as multifamily residential housing, and three are parking lots or unbuilt space. Not one of these properties is owned by the same individual. The seven other parcels with tax liens Wages in the city lag county and state wages are dispersed throughout the urban renewal area. in most sectors. The largest gap is in the Management of Companies and Enterprises Note: This data is current as of date of publication of this study and is subject to change. It is offered sector, where city wages are 28% of the county’s. only to demonstrate character of the urban renewal area. Workers in the city earn more than county workers in the Information, Administrative Support and Waste Management Services, Health Care and Social Assistance, PARCEL ID ADDRESS TITLE YEAR DUE Accommodation and Food Services, and Public N-11-0003 34 Danforth Street 20120055 2012 $20,004.63 Administration sectors. The city’s wages are N-10-0067 39 Danforth Street 20090469 2009 $16,970.52 below the state average in all sectors, with the N-20-0048 186 Rodman Street 20100085 2010 $26,873.68 greatest disparity (lowest percentage in table) in Finance and Insurance and Management of N-20-0042 158 Forth Street 201410058 2014 $5,892.13 Companies and Enterprises, both high wage I-09-0056 335 South Main Street 20080089 2008 $8,390.42 sectors at the state level. I-09-0009 308 South Main Street 20120189 2012 $160,154.72 N-03-0012 205 Bedford Street 201500049 2015 $4,257.77 Tax Liens N-07-0049 25 North Main Street 201500130 2015 $11,976.26

Table 3-14 details the thirteen parcels in N-10-0021 102 Pine Street 20120007 2012 $12,839.62 the urban renewal area that have tax liens. N-10-0022 Pine Street 95016010 1995 $44,088.63 Collectively, they total $355,970.03. The oldest N-08-0029 251 Rock Street 20120207 2012 $12,708.16 of these liens dates back to 1995; the median N-10-0016 Durfee Street 20100605 2011 $29,058.45 lien age is five years old. N-11-0002 40 Danforth Street 20160144 2016 $2,755.04

Figure 3-11, on the following page, shows the Total $ 355,970.03 locations of these parcels. Six of these liens are Table 3-14: Parcels with Tax Liens Source: City of Fall River, April 13, 2017

92 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 3. Plan Eligibility

N-10-0067 N-10-0016 CHERR N-11-0002 Y ST. N-11-0003 N-08-0029 N-10-0022 N-10-0021 INTERSTATE 195

HIGH ST.

GREEN ST.

N-07-0049

POCASSET ST.

NORTH MAIN ST.

N-03-0012 BEDFORD ST.

PEARL ST. INTERSTATE 195 PLEASANT ST.

SOUTH MAIN ST. I-09-0056 N-20-0042

MORGAN ST. Legend RODMAN ST. N-20-0048 Parcels with Tax Liens Plan Boundary I-09-0009 Parcels YMOUTH AVE. PL Data Sources: Tax Liens and Parcel Data from the City of Fall HARTWELL ST. River Assessor's Office; Imagery (C) Google

Figure 3-11: Parcels with Tax Liens (Note: Current as of date of publication. Subject to change.)

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 93 acquisition, spot clearance, rehabilitation, and of acquisitions that have subsequently been 3.3 Clearance and new construction. developed according to the requirements of Rehabilitation this urban renewal plan. Changes to the plan Acquisitions are governed by 760 CMR 12.03, as outlined in The FRRA has identified parcels for acquisition Section 15 Process for Future Changes. (see Table 2-2 in Section 2. Characteristics). A map of planned acquisitions and table listing The intent is to acquire one or more of these Before the FRRA can acquire a parcel, two parcel identifications, addresses, owners, size, parcels over the life of the plan and undertake independent appraisals of the parcel must value, and potential activities are available in the appropriate course of action as identified be submitted to DHCD. The appraisal Section 2.2 Required Maps. This map identifies below. All of these activities may be undertaken and negotiation process must follow the the parcels the FRRA expects to acquire to fulfill by the FRRA alone or in partnership with a requirements set forth in 760 CMR 12.04. the public purposes of this Urban Renewal Plan. redeveloper. In addition, the FRRA must follow the The FRRA has identified parcels for acquisition requirements for a Relocation Plan as described (see Table 2-2 in Section 2 Characteristics). This section describes specific redevelopment in Section 10. Relocation. The intent is to acquire one or more of these activities within the explicit purview of the parcels over the life of the plan and undertake FRRA that support the objectives detailed in 760 CMR 12.02 (2) requires certain additional the appropriate course of action as identified Section 4 Plan Objectives. information if the urban renewal plan proposes below. All of these activities may be undertaken clearance and/or rehabilitation activities. by the FRRA alone or in partnership with a Redevelopment redeveloper. Fit studies, described in Section 4 Plan Objectives, tested the type and scale of development Redevelopment activities are categorized under The FRRA will periodically assess the progress acquisitions, clearance, rehabilitation, and new that could take place on some of the parcels of this plan's implementation and identify identified for acquisition. construction. Section 2 Characteristics contains other properties for acquisition and disposition the maps that locate the actions related to or remove any properties identified in the list

94 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 3. Plan Eligibility

Clearance Rehabilitation that rehabilitation of buildings with existing vacancies is more likely. This urban renewal plan does not anticipate The FRRA may choose to rehabilitate existing significant areas of clearance. structures in whole or in part, working with private developers. As demonstrated in the fit Spot Clearance studies, some buildings may be renovated to serve new purposes. The ability to renovate Most of the parcels have a building on the existing buildings will depend on a number site. The plan calls for rehabilitation of these of factors, including structural conditions, the buildings and Figure 2-16 identifies those ability to mitigate existing hazardous materials, buildings likely to be rehabilitated. However, and the market for the type of floor plates and structural, environmental and/or market access the existing building provides. conditions may require that a building be cleared rather than rehabilitated. The FRRA may either The existing market conditions and the presence clear existing structures or mitigate existing of so many buildings with upper floor vacancies environmental conditions itself or it may suggest that initial development activities by the dispose of acquired properties to a developer FRRA are likely to focus on rehabilitation. with the stipulation that the sites be cleared and/or mitigated to the appropriate standard New Construction as part of the redevelopment of those sites. Existing environmental conditions may include This plan does not anticipate significant new one or more of the following: the presence of construction within the early phases as the hazardous materials, flooding conditions, or absorption rates for the downtown suggest other similar site-related conditions.

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 95 In addition to this GIS analysis, the consultant parks, natural resources, ethnic diversity, 3.4 Local Survey and team completed an inventory of the urban arts, and cultural venues. Conformance with renewal area on foot. This inventory was • Have an economy that attracts a wide the Municipality’s motivated by two goals: (1) identifying current variety of jobs and provides job training land use in the downtown, and (2) cataloguing opportunities for its residents. Comprehensive Plan locations of vacancies. Vacancy data, in its • Be an active site for tourism based on aggregated form, was later used to understand its historic and cultural resources, its 760 CMR 12.02 (2) requires that the urban how the downtown might develop in the future, waterfronts, and its ethnic diversity. renewal plan be based on a local survey and and how this development would impact conform with the municipality’s comprehensive parking demand. The results of this analysis • Have a vibrant downtown that serves as plan. are discussed in Section 2. Characteristics and an active center for commerce. Section 3. Eligibility. • Have many attractive mill buildings Local Survey and other historic structures that have been rehabilitated to provide for retail, The Downtown Urban Renewal Plan was built artists’ live/work space, tourism, and upon a thorough analysis of local conditions. Master Plan residential uses. Spatially, much of this analysis was conducted The City of Fall River Master Plan, published in • Have a renewed and well maintained using ESRI ArcGIS and shapefiles provided by 2009, establishes a 15-point Vision for the city park system that is knitted together by the City of Fall River. As necessary, this data was for the year 2030. This Urban Renewal Plan tree-lined boulevards and a system of supplemented with shapefiles downloaded from advances several components of this Vision: the MassGIS and MassDOT websites. Data multi-use trails, sidewalks, and green- layers and sources are identified on each map, • Have actively preserved all that is good ways. below the map’s legend. about the city including its waterfront, • Be a safe and clean place to live and raise historic buildings, churches, unique a family. Public safety will be a priority. Residents will take pride in the city’s ap-

96 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 3. Plan Eligibility

pearance, and public spaces and private 2. Improve parking and circulation in talization and serve as a focal point for buildings will be well-maintained. downtown. community gathering and pride. • Have a wide-variety of housing options 3. Develop linkages between the water- 9. Develop greenways along the for individuals and families of all means. front and downtown. Quequechan River corridor as linkages • Have a convenient and safe circulation 4. Improve the appearance of downtown between areas. system with adequate and affordable through a façade and sign improvement 10. Continue to support the Fall River public transportation that includes a initiative. Energy Enterprise (FREE) proposal to commuter rail connection to Boston, 5. Improve the downtown streetscape once again use the Quequechan River safe intersections, provisions for pe- through a historically sensitive and lively as a source of hydro-power. destrians and bicyclists, and an easy to palette of paving materials, lighting, and 11. Encourage the reuse of the historic mill follow sign system. site amenities. buildings along the Quequechan River The Vision also includes points on day-lighting 6. Continue to explore artist’s live/work corridor for a mixture of uses –residen- the Quequechan River, a topic that is discussed space as a way to create housing and tial, commercial, and industrial. in Section 9. Public Improvements. utilize low-use mill space. 12. Include provisions governing mill 7. Continue to explore the desirability conversion in the modernized zoning In addition to the Vision, which applies to the of waterfront lofts for residences for ordinance. city as a whole, the Master Plan makes twelve both artists and non-artists, and the recommendations specifically pertaining to As with the points in the Vision, this Urban possibilities of mixed use buildings on the development of Fall River’s downtown and Renewal Plan is consistent with, or builds upon, the waterfront combining commercial Quequechan River corridor. They are: these ideas as they apply to present-day Fall and residential activities, with higher River, and to the scope and geography of this 1. Reestablish the downtown as an im- income units. planning effort. portant commercial and activity center. 8. Restore the Quequechan River and its falls as a key element of the City’s revi-

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 97 Other Recent Planning • Historic Lower Highlands Downtown • Create and implement a plan for a mu- Initiatives Streetscape Project, December 11, 2015 nicipal and regional system of walkways, (BETA Group) trails, and bike routes. Nearly eight years have elapsed since the Master • Targeted Streetscape Improvements Master • Create a system of greenways in urban Plan’s publication. During this time, additional Plan 2016 - 2021, April 2016 (BETA Fall River. local planning documents have been published. Group) • Reposition the parks, green and open These are: • Purchase, Bank and Granite Streetscape space in terms of their benefit to public • Open Space and Recreation Plan, 2010 Enhancement Project, May 17, 2017 safety, public health, economic develop- (Open Space and Recreation Task Force, (BETA Group) ment and quality of life in Fall River. City of Fall River) • Columbia Square Intersection Enhance- In addition to its goals, the Open Space ment Project, May 24, 2017 (BETA • Towards an Evidence-Based Housing and Recreation Plan is instructive in the Group) Policy in Fall River, Massachusetts, No- environmental inventory and analysis it vember 2016 (Public Policy Center at • Harborside Neighborhood District En- contains. Fall River’s environmental challenges, UMass-Dartmouth and Representative hancement Plan, January 11, 2016 as described in the document, include Carole Fiola) (BETA Group) hazardous waste and brownfield sites, illegal • Fall River Historic Streetscape Study, 2014 trash dumping, ground and surface water (BETA Group) 2010 Open Space and Recreation Plan pollution (which it partially attributes to stormwater runoff), and impaired water bodies. • Preliminary Feasibility Study – Daylight- The 2010 Open Space and Recreation Plan Some of these conditions, the Plan notes, are ing and Revitalizing the Quequechan defines seven goals for the city. Of these, four relegated to specific geographies in the city, River, August 2017 (Prepared by ESS are relevant to this Urban Renewal Plan: making environmental equity a challenge in Group for Green Futures) itself. This Urban Renewal Plan expands on • Expand and improve recreation oppor- these conditions in Section 3. Eligibility. tunities in Fall River parks.

98 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 3. Plan Eligibility

The Open Space and Recreation Plan is currently and South Main streets between Cherry and and resources, which may be useful in future being updated. Columbia streets. planning efforts.

Towards an Evidence-based Housing Preliminary Feasibility Study – Historic Lower Highlands Downtown Policy in Fall River Daylighting and Revitalizing the Streetscape Project Quequechan River The recommendations contained within The project area for this study extends north Towards an Evidence-based Housing Policy This Feasibility Study was prepared by from the I-195 corridor to President Avenue in Fall River pertain to policy. Thus, there is ESS Group for Green Futures, a Fall River and is bounded to the east by June Street and no significant intersection with this planning environmental group. The Study reviews current to the west by the Taunton River. It includes effort. That said, the analysis featured within conditions along the path of the Quequechan the Lower Highlands Historic Downtown the document – particularly details about River and provides an overview of potential District, recognized in 2012 by the American absentee landlords, housing code violations, opportunities for its partial restoration. Planning Association as one of the Great and foreclosures and vacancies – have been While various City departments were asked Places in America: Neighborhoods. The focus of extremely valuable in the development of this to contribute materials and comments to the the study is to propose functional, safe, and Urban Renewal Plan. See Section 1.1 Description Study, it has not been vetted or adopted by the understandable vehicular, bike, and pedestrian of the Plan Area for more detail. City. It was also not a part of the public process connections between both existing destinations for the waterfront or downtown urban renewal and planned future attractions and destinations. Fall River Historic Streetscape Study plans, since it was published after that process started, and is therefore not incorporated into This study proposed streetscape improvements the recommendations of this plan. However, the for the downtown corridor along North Main document does summarize existing materials

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 99 Targeted Streetscape Improvements and enhancing the link between the waterfront Public Library block, including the open space Master Plan 2016 - 2021 and downtown via Bank Street. connecting them, are conceived of as critical links in a chain leading from the waterfront This Master Plan proposes streetscape Columbia Square Intersection along the Central Street/Green Street/bank Street corridor to the North Main and Purchase improvements for several neighborhoods, two Enhancement Project of which are within the boundaries of this Street downtown business district. downtown urban renewal plan and which are the subject of more detailed planning This project is for streetscape enhancements documents (see below): (1) Purchase, Bank, and at the intersection of South Main Street and 3.5 Regional Planning Granite Streets; and, (2) The Columbia Square Columbia Street as a gateway for the Columbia The Southeastern Regional Planning and Intersection. Street cultural district. Columbia Street itself has potential to serve as one connection Economic Development District (SRPEDD) between the downtown and the waterfront. is the regional planning agency for Fall River. Purchase, Bank and Granite Streetscape This group has issued several plans that direct Enhancement Project the city's development: Harborside Neighborhood District • Southeastern Massachusetts: Vision 20/20 This project, for which construction will begin Enhancement Plan - An Agenda for the Future in late 2017/early 2018, includes significant , 1999 enhancement to Purchase Street (between This report introduces the concept of the • South Coast Rail Corridor Plan Update: Bedford and Cherry Streets), Granite Street "Harborside Neighborhood" as a vital link in Community Priority Areas of Regional (between North Main and Rock Streets), and the connection between the waterfront and Significance, 2013 Bank Street (between Purchase and Green the downtown area. In the plan, "Harborside • South Coast Rail Corridor Plan: Five-Year Streets). The goals include encouraging private Park" (city-owned, vacant land north of Update of Community Priority Areas - Fall investment in the Purchase Street neighborhood Central Street), the proposed 64 Durfee Street River, 2013 residential project, and the Bank Street Armory/

100 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 3. Plan Eligibility

• Comprehensive Economic Development This Urban Renewal Plan, in its revitalization and Priority Areas for Protection. Fall River Strategy, 2015 of a downtown area, and intent to reinforce has six Priority Areas for Development, two of • Regional Transportation Plan, 2016 unique elements of the city, supports the goals which (Arts Overlay District and the Central identified by Vision 20/20. Business District) intersect the urban renewal 1999 Southeastern area. Not one of the three Priority Areas for 2013 South Coast Rail Corridor Protection that exist within the city intersect the Massachusetts: Vision 20/20 urban renewal area. Plan Update: Community Published in 1999, Southeastern Massachusetts: Vision 20/20 follows a period of tremendous Priority Areas of Regional South Coast Rail Corridor Plan: population growth in southeastern Significance Five-Year Update of Community Massachusetts. (Notably, Fall River, along with Brockton and New Bedford, did not The 2013South Coast Rail Corridor Plan Priority Areas - Fall River Update: Community Priority Areas of Regional experience this growth; these cities grew by Like its region-wide counterpart, the South about 4% between 1970 and 1999 while the Significance was developed by SRPEDD, Old Colony Planning Council, the Metropolitan Coast Rail Corridor Plan: Five-Year Update of rest of the region grew by more than 80%.) Community Priority Areas - Fall River describes Correspondingly, Vision 20/20 emphasizes Area Planning Council, and representatives from the communities they serve. The intent the Priority Area designation and identifies managing future growth, diverting growth to those areas that have been selected. It also existing urban centers, protecting rural areas, of this Plan is to designate Priority Areas in the region which will then be the target of includes a series of maps: (1) Community and preserving natural environments. Transit Priority Area Designations, (2) Open Space and infrastructure is seen to enable this work, investment and focused planning activities. These Priority Areas fall into two categories: Developed Land, (3) Economic Development thus its development is defined as a priority. and Infrastructure, (4) Water Resources, (5) The document also stresses the importance of Priority Areas for Development (those areas that have excellent development potential due to Biodiversity and Natural Resources, and (6) maintaining the unique identities of the region's Housing and Environmental Justice. municipalities. proximity to transit and existing infrastructure)

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 101 é

!(î

BOURN AVENUE

HORTONVILLE ROAD CHACE ROAD City of Fall River CHACE STREET BULLOCK ROAD Community Priority FREETOWN

Areas, 2013 BARK STREET

SHARPS LOT ROADSTEVENS ROAD ELM STREET 95-05 Priority Development Areas (PDAs) SWANSEA Priority Protection Areas COUNTY STREET 2015 Comprehensive READ STREET BRAYTON AVENUE (PPAs) WILSON ROAD PROSPECT STREET

RIVERSIDE AVENUE Combined PDA/PPA 79 Economic Development 24

Interstates SOMERSET NORTH MAIN STREET WILBUR AVENUE 6 Strategy Arterials and Collectors 95-08 Local Roads

Every year, the SRPEDD publishes a STREET MERIDIAN é ONEIL ROAD 95-07

(!î MBTA Proposed Stations 95-04 ROBESON STREET é comprehensive economic developmentMBTA Proposed strategy Rail Lines !(î 6 NEW BOSTON ROAD for the region. The 2015Strategy Water establishes six 195 95-02 LOCUST STREET goals: 95-01 BLOSSOM ROAD é BEDFORD STREET

!(î é

24 !(î PLEASANT STREET • Support the development of small busi- 95-03 6 COUNTY STREET BOURN AVENUE

HORTONVILLE ROAD CHACE ROAD

CHACE STREET ness and new startups in the region WARREN STREET City of Fall River BULLOCK ROAD GLOBE STREET Community Priority FREETOWN • Support the development of infrastruc- BRAYTON AVENUE OLD BEDFORD ROAD Areas, 2013 BARK STREET

SHARPS LOT ROAD ture for economic development TUCKER STREET OLD FALL RIVER ROAD HIXVILLE ROAD STEVENS ROAD 95-06 ELM STREET 95-05 BAY STREET Priority Development Areas SOUTH MAIN STREET (PDAs) • Pursue sustainable development and 24 95-10 95-09 SWANSEA Priority Protection Areas COUNTY STREET BRAYTON AVENUE enhance the region’s quality of life 195 READ STREET (PPAs)DARTMOUTH WILSON ROAD GRAND ARMY OF THE REPUBLIC HIGHWAY PROSPECT STREET

RIVERSIDE AVENUE Combined PDA/PPA 79 • Broaden the region’s economic profile; 24 This map is for the sole purpose of aiding

regional planning decisions and is not Interstates SOMERSET NORTH MAIN STREET promote employmentwarranted opportunities for any other use. June in 2013 WESTPORT WILBUR AVENUE 6 ArterialsREED ROAD and Collectors emerging sectors such as marine science, 95-08 Local Roads BRIGGS ROADSANFORD ROAD 88 biotech, and the creative economy é ONEIL ROAD 95-07 STREET MERIDIAN

(!î MBTA Proposed Stations 95-04 ROBESON STREET STATE ROAD é MBTA ProposedSTATE ROAD Rail Lines !(î 6 • Provide institutional support for eco- NEW BOSTON ROAD

Water 195 1 mile AMERICAN LEGION HIGHWAY nomic development 95-02 LOCUST STREET

95-01 BLOSSOM ROAD é BEDFORD STREET

• Broadband infrastructure, adoption, !(î Figure 3-12: City of Fall River Community Priority Areas 24 PLEASANT STREET and digital inclusion in Massachusetts 95-03 6 Source: South Coast Rail Corridor Plan: Five-Year Update of Community Priority Areas - Fall River COUNTY STREET

WARREN STREET

GLOBE STREET 102 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 BRAYTON AVENUE OLD BEDFORD ROAD

TUCKER STREET OLD FALL RIVER ROAD HIXVILLE ROAD 95-06 BAY STREET

SOUTH MAIN STREET 24 95-10 95-09 195 DARTMOUTH GRAND ARMY OF THE REPUBLIC HIGHWAY

This map is for the sole purpose of aiding regional planning decisions and is not warranted for any other use. June 2013 WESTPORT

REED ROAD

BRIGGS ROADSANFORD ROAD 88

STATE ROAD STATE ROAD

1 mile AMERICAN LEGION HIGHWAY 3. Plan Eligibility

Each goal is attached to a measurable indicator, 2016 Regional Transportation walking more attractive, another goal of the and is connected to a regional Strengths- Plan Regional Transportation Plan. Weaknesses-Opportunities-Threats analysis. The document also includes activities and progress The 2016 Regional Transportation Plan generally In its assessment of existing conditions in the relating to that goal. Fall River is mentioned in aims to use the region’s transit system to region and projections of future challenges, the the activities and progress section a number of enable Smart Growth development. The Plan document describes a number of conditions times in relation to University of Massachusetts establishes a number of goals towards this end, specific to Fall River. These include dangerous Advanced Technology Manufacturing Center, which are distributed across seven categories: intersections and high pedestrian crash rates (six Bristol Community College, and construction Safety, System Preservation, Congestion of the region’s top ten pedestrian crash corridors on State Pier. The Comprehensive Economic Reduction, System Reliability, Environmental are located in Fall River, and all six intersect Development Strategy also involves a series of Sustainability, Economic Vitality and Freight the downtown urban renewal area). This Plan findings, a portion of which relate to the region’s Movement, Project Development and also recognizes Fall River as the municipality in challenges. Among these are that population Implementation. Many of the goals listed Southeastern Massachusetts with the “highest growth currently outpaces job growth, that in these sections will both advance, and be un-met transportation need.” The planned educational attainment is low, and that some supported by, the work of this Urban Renewal South Coast Commuter Rail Line will offer parts of the region experience more economic Plan. For example, the goal to “Improve the some relief, however its development will take distress than others. The Strategy cites Fall River efficiency of the transportation system for all many years. as one of the regions with heightened economic users while promoting transit, bicycling, and distress. pedestrian alternatives” will, among other things, support this Urban Renewal Plan’s work of increasing safety by increasing activity on the streets. The streetscape improvements prescribed by this Plan will make bicycling and

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 103 3.6 Consistency with the Commonwealth’s Sustainable Development Principles

DHCD requests that communities undertaking an urban renewal plan consider the Commonwealth’s Sustainable Development Principles. The chart below identifies these principles and the strategies within the Plan that support those principles.

SUSTAINABILITY PRINCIPLES FALL RIVER DOWNTOWN STRATEGIES CONSISTENT? 1. Concentrate Development and Mix Uses Focus on mixed-use development within the existing downtown Y Recognition of the needs of the Environmental Justice population for jobs, goods, and 2. Advance Equity Y services Coordination between FRRA, planning Board, and City council for implementation 3. Make Efficient Decisions Y actions 4. Protect Land and Ecosystems Y Prioritization of infill development and redevelopment within an existing urban area 5. Use Natural Resources Wisely Y 6. Expand Housing Opportunities Encouragement of new/rehabilitated housing at multiple income levels Y Consideration of improvements to existing bus network as area is redeveloped over 7. Provide Transportation Choice Y time Redevelopment of vacant upper floors to encourage businesses to locate within 8 Increase Job and Business Opportunities Y downtown; expansion of uses, including light/boutique manufacturing 9. Promote Clean Energy Inclusion of energy-efficient measures in design guidelines Y 10. Plan Regionally Consistent with regional plans Y

Table 3-15: Consistency with the Commonwealth's Sustainable Development Principles

104 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 4. Plan Objectives

4. Plan Objectives

The FRRA seeks to reinvigorate Fall River’s Transform Drivers into key spots within the downtown, and accessible downtown and connect it, where appropriate, Pedestrians public parking that will encourage drivers to to the waterfront. The buildings and lots within leave their cars and walk throughout the area. the urban renewal area are underutilized. Upper The first key to an invigorated downtown is The wayfinding strategy could change over floors are vacant, lower floors do not contain to get people to stop, park, and move around time to address the redevelopment activities, active uses that contribute to the vitality of the in the downtown. The location has excellent advertising new businesses, residences, and street, and current parking is insufficient for regional access from I-195, Route 79, and the available parking as these amenities are added. future uses. extended Main Street corridor. However, once within the immediate area, a system of one- Street Network 4.1 Plan Objectives way streets is difficult for drivers to navigate. Drivers who wish to park within the downtown The street network within the downtown is Creating an active, vibrant downtown requires are unsure of which locations are appropriate set up as a grid, but with a system of one-way three main strategies: and availability changes drastically during the streets that can confuse drivers unfamiliar with business hours of the Fall River Justice Center the area. (See Figure 3-7: Circulation.) One- • Transform drivers into pedestrians. on South Main Street. way networks are inefficient for local trips, • Redevelop underutilized land and and may require a driver to circle around the buildings into mixed-use structures Wayfinding area because of a missed destination. One-way that support active use on the ground streets are also less safe as drivers are more likely floor, and office, light industrial, and/ Getting people from “there” to the downtown to move at a higher speed. These conditions are or residential above. requires physical signage and a marketing not ideal for retail environments; in addition, • Create a lively streetscape with “eyes on strategy that reaches beyond the city’s borders. A fewer drivers on a street mean less visibility for the street” 12 to 18 hours a day. coordinated signage strategy – wayfinding – with stores. Many cities have begun to shift their one- consistent graphics and text, can direct people way networks to two-way networks, including from the principal roads to the downtown, Austin, Berkeley, Cambridge, Chattanooga,

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 105 Cincinnati, Louisville, New Haven, Palo Alto, Sacramento, San Jose, Seattle, St. Petersburg, and Tampa.

The primary one-way corridors include North Main Street, Bedford Street, and Pleasant Street. The one-way system should be re-evaluated to see if conversion to a two-way system would support the active ground-floor uses that are appropriate for the downtown area. Pedestrian safety in a walkable downtown is also critical; slowing vehicular speeds by converting to a two-way system could address perceived safety issues in the area.

Parking

As noted in Section 3. Eligibility, the amount of parking available now is not fully sufficient for the needs of existing businesses, with some crunch Figure 4-1: Parking Lots in Downtown Fall River periods during certain times of the day. While Source: Prepared by the Consultant Team for the December 2016 FRRA Meeting adding more parking, especially structured significant amounts of structured parking over stand-alone parking structure, and so alternative parking, is an obvious choice, emerging trends the next decade or two. This timeframe is well methods of addressing the need for parking in personal travel may decrease the need for within the life of the bond necessary to finance a should be considered.

106 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 4. Plan Objectives

tended to get their drivers licenses later in life and in fewer numbers than other generations. Demographics show that 43% of the households in the urban renewal area do not own cars. Autonomous vehicles are still in the test stage, however, within the life of a bond, such vehicles may change how people think about travel and car storage in fundamental ways.

In the short-term, Fall River needs to consider other tools for managing parking demand. These include the following:

• Undertake a full parking study to establish current demand as a baseline. The baseline would help measure the impact of new development to determine the amount of parking necessary for the area. • Revise the parking requirements in the Figure 4-2: On-Street Parking Types and Locations in Downtown Fall River Source: Prepared by the Consultant Team for the December 2016 FRRA Meeting City’s zoning to be consistent with current best practices. As noted in Section A parking space is simply storage for a vehicle rise of car sharing services such as Zipcar, Uber, 3. Eligibility, the current requirements for some period of time. The need for such and Lyft have changed how people in urban are based on the number of employees storage may change as technology changes. The areas think about local travel. Millennials have rather than square footage, which is

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 107 the industry standard. This difference Developers sometimes create more parking than commuters and no bus routes have ser- makes it difficult to compare the parking is needed; empty parking fields are a waste of vice on Sunday. regulations with standards such as the valuable downtown land and create spaces that • Consider the impact of the expansion ITE Parking Generation manual or those may appear unsafe to pedestrians. The City of commuter rail services through the standards developed by other cities for should consider regulations that prevent over- South Coast Rail plan and how public their downtowns. building parking such as: transit could link the proposed com- • Create a “fee in lieu of” parking program • Adopt maximum parking requirement muter rail station to the downtown that allows developers to pay a fee to instead of, or in addition to, minimum at times that support the commuting the City in lieu of providing required requirements. habits of new residents. parking; such a fee would allow the City • Allow the use of off-site parking within • Encourage the expansion of goods and to provide parking when there is a dem- a certain walking distance to contribute services in the downtown that allow onstrated need for additional parking to to satisfying minimum parking require- residents to meet daily needs without support future development. ments. driving. • Encourage private property owners • Require that the cost of parking be • Understand the changes in vehicular with abutting properties to enter into “unbundled” from leases; charging sepa- technology that will change how people formal shared use parking agreements. rately for parking creates an incentive for view and use cars over the next two This strategy is most effective when the more efficient use of available parking. decades. abutting properties have compatible uses with parking demands that do not In the long-term, strategies to reduce future The FRRA can undertake certain actions conflict with each other. For example, parking demand include the following: to support the goal of turning drivers into an office next to residential or daytime pedestrians. These actions include the following: retail with evening restaurant. • Expand and enhance local transit service provided by the SRTA. Many existing • Partner with the City and local institu- routes end too early in the evening for tions to develop and install a consistent

108 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 4. Plan Objectives

and coordinated wayfinding strategy for Redevelopment may improve the site prior to disposition (Section visitors and residents. This strategy can 8. Site Preparation). Other actions to support be tied to the City’s marketing strategy, The redevelopment of the downtown is likely these strategies include implementing public but with a specific element, such as a to take place in three stages. Market conditions streetscape or infrastructure improvements logo and associated font, that identifies and the processes required for acquisition and (Section 9. Public Improvements) to support the downtown as a separate and distinct disposition will almost certainly cause these private development and establishing controls area. stages to overlap. The three stages are as follows: on land use, building dimensions, and building and site design as discussed in Section 4.5 • Undertake a parking study that builds • Developing the Spine: South Main to Proposed Development Controls. on the research for this Urban Renewal North Main Plan and identifies the baseline parking • Filling in the Blanks: Infill Rehabilita- supply and demand, evaluates future tion and New Development demand, and recommends revisions to the City’s parking requirements. • Expansion: Connecting the Corridors • Acquire land/easements for streetscape The FRRA will act as a catalyst by helping to improvements and two-way conver- focus development efforts to meet the goals of sions. this Plan, by acquiring under-used buildings • Acquire land for parking to supplement and land, and disposing of those properties to needs of new development. redevelopers whose proposed projects meet the public purposes and objectives of this Urban • Partner with the City and SRTA to Renewal Plan. To support the development evaluate current and future bus transit strategies discussed that follow, the FRRA can needs to supplement transit choices. assemble parcels through acquisition and then dispose of those parcels to redevelopers as outlined in Section 10. Disposition. The FRRA

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 109 Developing the Spine: South Main to North Main

Both arms of Main Street (North and South) connect the downtown to the larger city by reaching into the neighborhoods. City Hall acts as the elbow between the upper and lower arm, connecting across the valley of I-195 that split the two sides of the city when it was constructed in the 1960s. Regional access to the downtown is excellent – recent improvements to the I-195/ Braga Bridge connections have simplified the access between the downtown and both I-195 and Route 79.

South Main Street is the location of the Fall River Justice Center, and although the buildings Figure 4-3: Developing the Spine along this street are under-used, it retains more of the original development pattern than North streetwall along North Main Street are generally Main Street has more activity, although some of Main Street, with fewer breaks in the wall of lots devoted to surface parking. it is tied to the hours of the court. For example, buildings that define the streetscape. The design one coffee shop closes at 3PM at the same time of City Hall creates a block to that streetwall, The activity levels are consistent with the as the court. North Main Street has even less and the wall is further compromised moving development pattern and the presence of the activity. Although the Fall River Public Library north on North Main Street. These breaks in the anchor of the Fall River Justice Center. South is a natural anchor, there are fewer restaurants

110 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 4. Plan Objectives

and other active uses in this area. Figure 4-4 shows vacancies in the buildings along North and South Main Streets that contribute to the lack of economic vitality in the area.

The primary goal for the redevelopment of the downtown is to strengthen Main Street as a consistent corridor or spine, so that active uses on both sides of the I-195 split attract people to move from one side of the downtown to the other. To achieve this consistent spine, vacant and under-used buildings should be redeveloped to contain active uses on the ground floor and office, residential, and/or light manufacturing on upper floors. The scale of these buildings should be appropriate to the core of a downtown and of higher density Figure 4-4: Filling in the Blanks than the nearby neighborhoods. Over time, lots now used for parking can be redeveloped Filling in the Blanks: Infill contiguous to the corridor. These areas are with new buildings, creating infill development Rehabilitation and New Development mostly residential, but with missing “teeth” to complete the spine. The loss of the parking where parking needs have created surface lots in those surface lots can be addressed by the As the spine of North Main and South Main and where buildings are fully- or partially- parking management strategies discussed earlier vacant. Small residential or mixed-use in this section. Streets is completed, infill development is likely to spread into the neighborhood areas developments, consistent with the existing scale

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 111 of the neighborhoods, can support the denser uses along the Main Streets corridor. Additional neighborhood retail and services on the ground floors of some of these buildings would support the needs of the residents.

Expansion: Connecting the Corridors

The rectangle defined by Bedford and Pleasant Streets is an economically vibrant area whose uses are less compact than those of the core of the downtown. As the remainder of the downtown changes over time, infill development may spread to this area. At that point, the businesses that require significant parking and auto- oriented businesses that are not appropriate for the downtown would need to relocate elsewhere Figure 4-5: Connecting the Corridors in the city. In the short-term, as uses change, current zoning and the development potential design guidelines and the design review process Fit Studies in the downtown are as follows: can ensure that parking lots are appropriately • 285-255 South Main Street lit and landscaped to address concerns about Several fit studies tested how development pedestrian safety. could meet the goals for the revitalization of • 467 Spring Street the downtown. The sites used to test the City’s • 82 Troy Street • 427 Plymouth Avenue

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Each of these sites, and the underlying parcels, has been identified for potential acquisition by the FRRA. However, the fit studies shown are Figure 4-6: 285 - 255 South Main Street - Scenario 1 for illustrative purposes only. For illustrative purposes only. Not a proposed project.

285-255 SOUTH MAIN STREET Three options were tested for this site, which is a combination of three parcels.

Scenario 1 kept the front of the ground floor as retail but added two levels of parking (basement and rear ground floor). The remainder of the building, including a new top floor, was residential. Scenario 2 removed the existing Figure 4-7: 285 - 255 South Main Street - Scenario 2 building and added a new building. The new For illustrative purposes only. Not a proposed project. building has a similar use profile to Scenario 1. Scenario 3 kept the ground floor retail on the South Main Street façade, but converted the remainder of the building into a parking garage to support other uses in the downtown. Parking below the existing basement level was not considered as part of this fit study.

Figure 4-8: 285 - 255 South Main Street - Scenario 3 For illustrative purposes only. Not a proposed project.

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 113 467 SPRING STREET preservation and re-use of the existing former This parcel is located on the corner of Bedford This site includes St. Mary’s School, owned school building because of its architectural and Troy Streets. The fit study tested ground by the Diocese of Fall River. The building is value. floor retail along Troy and Bedford Streets, with partially vacant and surrounded by a parking two levels of parking at the rear of the site. The 82 TROY STREET lot. The fit study tested ground floor retail along remainder of the building is office. Residential Rodman Street and Spring Street, converting was not tested, but could be an appropriate use the remainder of the site into residential uses at for the site. a scale that matches the existing neighborhood. 427 PLYMOUTH AVENUE Parking is provided at grade on site and open space surrounds the buildings. The City could This site is an historic mill building, listed on the use development incentives to encourage a Massachusetts Cultural Resource Information future developer to make any private open space System (MACRIS) database as FLR.478. part of the development available for public The study tested two options: the first was a use. Any plan for this site should include the combination of residential and retail and the second tested office only.

The parking discussion above noted the need for parking on-site to support the proposed uses is a limitation for some sites. A second limitation on redevelopment is the existing demand for residential, office, and retail. The market analysis performed as part of this study process indicates a current absorption rate that is below the amount of under-used space currently Figure 4-9: 467 Spring Street Figure 4-10: 82 Troy Street For illustrative purposes only. Not a proposed project. For illustrative purposes only. Not a proposed project. available. This suggests that, in the short

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PARKING DEVELOPMENT RESIDENTIAL RETAIL FLOOR:AREA PARKING SURPLUS/ SITE AND SCENARIO (SQUARE FEET) UNITS (SQUARE FEET) RATIO (SPACES) DEFICIT 285 - 255 South Main 70,000 44 16,900 1.55 209 86 Scenario 1

285 - 255 South Main 132,000 93 23,500 2.94 208 11 Scenario 2

285 - 255 South Main 17,000 0 17,000 0.38 380 295 Scenario 3

467 Spring Street 66,148 50 7,000 1.58 74 -18

82 Troy Street 67,500 53,000 14,500 1.4 227 -15

427 Plymouth Street 143,500 134,500 9,000 1.12 167 1 Residential/Retail

427 Plymouth Street 110,000 101,000 9,000 0.78 201 -96 Office Only Table 4-1: Current Uses of Test Sites for Fit Studies

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 115 term, new development will come from the rehabilitation of existing, under-used buildings rather than new construction. Over time, as the first successful projects spur additional demand, the absorption rates may shift to match developing trends. This is unlikely without significant support from the FRRA in terms Figure 4-11: 427 Plymouth Street - Residential/Retail of parcel assembly, the development of one or For illustrative purposes only. Not a proposed project. more catalytic projects that act as an example to private developers, and/or the implementation of public improvements to support private investment.

Streetscape

Enlivening the streetscape creates the activity currently missing from the downtown area. Important anchors, such as City Hall and the Fall River Justice Center attract people to the area, but there are few reasons for those people to stay past the opening hours of both anchors. While additional development, as described above, will be beneficial, the following strategies Figure 4-12: 427 Plymouth Street - Office Only will help improve activity and the “eyes on the For illustrative purposes only. Not a proposed project.

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street” that contribute to a perception that this Retention and Creation of Jobs is a safe and attractive area in which one can 4.2 Proposed walk, shop, work, and live. Redevelopment Activities 760 CMR 12.02 (3)(b) requires a specific estimate of the number of jobs retained, This urban renewal plan contains design Actions related to clearance, rehabilitation, created, and/or eliminated by the proposed guidelines to address the creation and redevelopment, and new construction are listed redevelopment actions in the Urban Renewal maintenance of an active streetscape throughout in Section 3.3 Clearance and Rehabilitation. Plan. the downtown. See Section 4.3 Design Guidelines.Table Fall River Urban Renewal Area Retail Gap Analysis The anticipated effect of the actions within Potentially this Urban Renewal Plan – and a major goal Selected Sales Supportable of this plan – is that existing employers will be Retail Store Type and NAICS Opportunity/Gap Square Feet Estimated Capturable (2016 $) Square Feet # Stores encouraged to expand and new employers will be Specialty Food Stores‐4452 $23,145,183 36,717 6,280 2 attracted to the area due to a combination of the Beer, Wine & Liquor Stores‐4453 $20,314,499 75,155 12,000 3 Cosmetics, Beauty Supplies, Perfume Stores‐ $2,271,894 5,315 1,500 1 planned physical improvements, the changes to Other Health & Personal Care Stores‐44619 $7,077,568 26,688 4,098 3 the regulatory environment, and efforts of the Women's Clothing Stores‐44812 $8,295,400 27,432 4,100 1 Family Clothing Stores‐44814 $12,128,934 30,969 6,000 1 Redevelopment Authority, The Fall River Office Shoe Stores‐4482 $2,375,271 11,495 3,000 1 of Economic Development, and the City of Fall Sporting Goods Stores‐45111 $11,051,835 38,697 6,000 1 Office Supplies & Stationery Stores‐45321 $4,647,229 14,464 4,000 1 River to assist current businesses and attempt Gift, Novelty & Souvenir Stores‐45322 $9,117,074 38,808 12,600 3 to recruit new ones. Development of market Other Miscellaneous Store Retailers‐4539 $14,378,155 45,180 9,200 4 Full‐Service Restaurants‐7221 $13,778,283 26,403 15,300 3 rate rental housing in the downtown is also a Special Foodservices‐7223 $8,419,482 23,677 8,000 4 targeted effort designed to attract new workers

Totals $137,000,807 400,999 92,078 28 and stimulate job increases in local businesses. Sources: The Nielsen Company, Segmentation & Market Solutions , 2016; various industry sources for sales per sf and sf per store; and FXM Associates Among the short term prospects for job Table 4-2: Retail Gap Analysis creation in the downtown are those that

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 117 emerge from the Retail Opportunity/Gap a consequence of actions taken as part of the some of these opportunities thus lessening the Analysis. This evaluation identifies target urban renewal plan, then an estimated 185 actual impact in downtown. retail store types and restaurants for which new jobs would be realized in downtown. The current consumer expenditures exceed store waterfront urban renewal area – which shares In addition to capturing new sales and jobs sales within a defined geographic market area. with downtown the same effective market area now leaking from the downtown market area, Because consumers are likely to purchase goods and retail gap – would be expected to capture additional retail jobs could be realized within and services as close as possible to where they the urban renewal area by capturing a share live and work the identified opportunity/gaps Figure suggest a competitive advantage for expansion Fall River RETAIL Space of existing establishments or recruitment of Historical & Forecast Net Absorption and Vacancy Rate new ones within downtown Fall River. The 160,000 8.0% 140,000 retail/restaurant opportunity for the 5-10-15 7.0% minute drive time market area for downtown 120,000 6.0% is currently estimated at $137 million in sales 100,000 and about 400,000 square feet, of which an 80,000 5.0% estimated 92,000 square feet is likely capturable 60,000 4.0% in downtown Table 4-2 identifies the store 40,000 Vacancy Rate types, supportable square footage, and number Net Absorption SF 20,000 3.0% of stores based on average sales per square foot 0 2.0% for each store type. 4Q 4Q 4Q 1Q 1Q (20,000) 17 2012 4Q 2013 2014 2015 2016 4Q20 2018 1Q 2019 1.0% (40,000) If those 92,000 square feet of expansions (60,000) 0.0% by existing retailers and restaurants and Net Absorption Vacancy Rate recruitment of new ones to fill existing vacant or newly rehabilitated space materializes as Figure 4-13: Retail Space: Historical and Forecast New Absorption and Vacancy Rate

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of estimated growth city-wide. The market leasing, administrative support, social assistance, programmatic initiatives of the urban renewal assessment projected net absorption of 67,500 medical services, and public administration plan are designed to encourage expansion square feet of retail space city-wide each year sectors. Table 4-3 shows the calculation of of existing office-using businesses as well as over the next five years. That would mean about average annual growth city-wide in office space. recruitment of new ones to downtown. 135 new jobs per year, or 675 over the next five The physical improvements, regulatory, and years city-wide. If the downtown urban renewal Table area captures only its current share of city- wide retail and restaurant employment (7%), Projected Growth in Occupancy in Medical & Total Office Space in Fall River then jobs within the downtown urban renewal would expand by 10 each year or 50 over the 2017‐2022 Average Annual 2017 Supply (SF) Growth (SF) Growth (SF) Annual % Growth next five years. With the proposed physical and Medical Office Space 580,784 regulatory improvements as well as aggressive Co Star Forecast Net Absorption 36,400 7,280 1.3% marketing and recruitment efforts focused on 2006 to 2017 Co Star Trend Line 86,666 17,333 3.0% Employment Growth Trend Line revitalization within the urban renewal area, Jobs 2,188 312 62 2.9% downtown’s share of retail space growth and Space 580,784 82,817 16,563 2.9% the number of jobs associated with that growth Average of Above Forecasts 68,628 13,726 2.4% would be greater. Figure 4.13 shows historical Total Office Space 3,308,878 and projected growth in retail space occupancy Co Star Forecast Net Absorption 107,480 21,496 0.6% city-wide. 2006 to 2017 Co Star Trend Line 222,988 44,598 1.3% Employment Growth Trend Line Jobs 11,079 905 181 1.6% Another category of job generation that Space 3,308,878 270,289 54,058 1.6% will be influenced by the Downtown Urban Average of Above Forecasts 200,252 40,050 1.2% Renewal Plan is office using employment Source: Mass DOL ES202 series; Co Star Property Information Systems ; and FXM Associates. March 2017 – encompassing the information, finance, professional & technical, real estate rental & Table 4-3: Projected Growth in Occupancy in Medical and Total Office Space

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 119 If downtown captures only its current 15% area will allow and encourage the development include design guidelines for the redevelopment share of office-using employment city-wide activities anticipated within this plan. of the property that are consistent with Section then an additional 28 jobs per year, 138 over 4.3 Design Guidelines. the next five years, would be expected in the The buildings, sites and streetscapes exhibit downtown Fall River Urban Renewal Area. If a variety of urban design characteristics and the urban renewal plan succeeds in enhancing conditions, as noted in Section 2.6 Urban the physical and regulatory environment for Design Characteristics. This plan incorporates downtown development then its share of city- the identified solutions into a series of design wide office-using employment is expected to guidelines detailed in Section 4.3 Design increase, as well as an increased share of regional Guidelines. These design guidelines are growth where over 8,000 additional jobs in applicable throughout the urban renewal area office-using sectors are projected over the next and promote the visual characteristics, public five years. spaces, multi-modal access, and landscape treatments discussed within this plan and the accompanying Appendix J: Waterfront Park Case Proposed Development Studies and the results of the Visual Preference Survey shown on the following pages. Controls The second means of development control is There are two types of development controls related to those properties under the control envisioned within this plan. The first are of the FRRA. Section 11 Redeveloper's the revisions to the City's zoning ordinance Obligation notes that the FRRA will enter into detailed in Section 2.5 Proposed Zoning. These a Land Disposition Agreement (LDA) with any recommended changes to the boundaries of developer acquiring property from the FRRA the zoning districts within the urban renewal by either purchase or lease. The LDA should

120 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 4. Plan Objectives

iron; the use of synthetic replacement 7. Building placement, massing, scale, and Section 4.3 Design materials should be avoided. proportions should be compatible with, Guidelines 3. The renovation or adaptive reuse of and complementary to, the alignment existing buildings is preferable to de- and patterns of neighboring buildings. The following design guidelines should molition and replacement with new 8. Building façades should be articulated apply throughout the urban renewal area. All construction, especially when the exist- with window openings or screens that development projects within the urban renewal ing buildings are made of durable, good allow for visibility and transparency; area that are subject to the City's processes for quality materials. or landscape buffers to mitigate the Site Plan Review or a Special Permit are required 4. Large parking lots should incorporate negative impact of long blank walls on to follow these guidelines. The Planning Board landscaping in the form of trees, veg- pedestrian activity. will use these guidelines as criteria within their etated islands or swales, and landscaped 9. Ground floor windows should be trans- approval process. edges to screen parking from street view. parent (not blocked by shades, curtains, 1. New buildings in a historic district 5. Sidewalks, crosswalks, and sidewalk paint, or paper) to allow visibility from should relate harmoniously to their extensions should be designed to pro- the street into the store or restaurant and neighborhood context by establishing vide universal access (ADA standards) vice versa, increasing safety and activity. relationships of use, scale, dimensions, throughout the district. 10. Where possible, the ground floor of the design patterns, and materials that are 6. On-site parking should be located to building should contain active uses such compatible with the historic design the side and rear of buildings, or at the as retail, restaurant, experiential retail, character of adjacent buildings. ground level of multifamily residential or other uses with significant need for 2. Improvements and repairs to historic buildings; parking areas visible from public access. buildings and resources should employ the street should be screened by fences, 11. The development should provide ameni- high quality materials consistent with hedges, or landscape buffers. ties consistent with the public standards the materials historically employed, such (see below), including lighting, street as granite, brick, stone, wood, and cast

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 121 Results of Visual Preference Survey

Visual Preference Survey Results MULTIFAMILY RESIDENTIAL Multifamily Residential 3.688 3.667 3.500 Attendees gave imagesAttendees of higher-density gave imagesresidential ofdevelopment higher-density greater scores residential than images Visual Preference Surveyof lower-density Results residentialdevelopment development. greater Traditional scores than forms images (rectilinear of withlower-density uniform breaks) and finishes (woodresidential clapboarding, development. brick, or stone) scoredTraditional better thanforms those (rectilinearthat were more Multifamily Residential contemporary in style.with This uniform said, images breaks) depicting and developmentsfinishes3.688 (wood with a clapboarding,mixture of tradition- 3.667 3.500 al finishes-–a modern twist-–did rank well. Attendees gave images of higher-density residential development greater scores than images brick, or stone) scored better than those that were more of lower-density residential development. Traditional forms (rectilinear with uniform breaks) contemporary in style. This said, images depicting and finishes (wood clapboarding, brick, or stone) scored better than those that were more developments with a mixture of traditional finishes-–a

contemporary in style. This said, images depicting developments with a mixture of tradition- Source: Eitel Building City Apartments in Minneapolis, MN by BKV Group Source: Loft Lawrence, MA Five50 Apartments by The Architectural Team, al finishes-–a modern twist-–did rank well. modern twist-–did rank well. Offices 3.938 3.750 3.750 The favored office images offered no indication of a preferred density; highest-ranked images varied greatly in scale. In all cases however, the building occupied the full parcel, with Source: Eitel Building City Apartments in Minneapolis, MN by BKV Group Source: Loft Lawrence, MA Five50 Apartments by The Architectural Team, edges extending fully to meet the sidewalk. First floors were highly permeable, with ample OFFICES Offices entrances and windows. Preferred images were all also united3.938 in design strategies, such as 3.750 3.750

Fall River Downtown Redevelopment Plan River Downtown Redevelopment Fall higher elevations that were offset, that facilitated a human-scaled environment. As with res- The favored office images offered no indication of a preferred density; highest-ranked im- The favored office images offered no indication of a idential developments, attendees exhibited a preference for more traditional building forms ages varied greatly in scale. In all cases however, the building occupied the full parcel, with preferred density; highest-ranked images varied greatly in and finishes. They did assign high scores however to images with traditional forms on the edges extending fully to meet the sidewalk. First floors were highly permeable, with ample lower stories and more modern styles above. scale. In all cases however, the building occupied the full entrances and windows. Preferred images were all also united in design strategies, such as Source: Arc Light Co by HKS Architects in SF, CA Source: Arc Light Co by HKS Architects in SF, parcel, with edges extending fully to meet the sidewalk. CO 8 Headquarters Region Architects in Denver, by Zimmer Gunsul Frasca Source: EPA

Fall River Downtown Redevelopment Plan River Downtown Redevelopment Fall higher elevations that were offset, that facilitated a human-scaled environment. As with res- First floors were highly permeable, with ample entrances idential developments, attendees exhibited a preference for more traditionalMixed-Use building forms Development 4.438 4.250 4.125 and finishes. They did assign high scores however to images with traditional forms on the and windows. Preferred images were all also united in lower stories and more modern styles above. On the whole, images depicting mixed-use projects scored much higher than those exhib- design strategies, such as higher elevations that were offset, Source: Arc Light Co by HKS Architects in SF, CA Source: Arc Light Co by HKS Architects in SF, iting just residential development or just office development. The favorite images for the CO 8 Headquarters Region Architects in Denver, by Zimmer Gunsul Frasca Source: EPA mixed-use development category were of uniformly lower density (two to four stories) than that facilitated a human-scaled environment. As with Mixed-Use Development the images selected for the previous categories. They also show4.438 a high degree of horizontal 4.250 4.125 residential developments, attendees exhibited a preference On the whole, images depicting mixed-use projects scored much higher thanvariation; those exhib- even when the building is continuous, finishes vary intermittently to disrupt any for more traditional building forms and finishes. They did iting just residential development or just office development. The favoritemonotony. images for These the images are also characterized by a blurred boundary between private and assign high scores, however, to images with traditional mixed-use development category were of uniformly lower density (two to fourpublic stories) realm. than For example, buildings have glass store fronts, large awnings, and cafe furni- forms on the lower stories and more modern styles above. the images selected for the previous categories. They also show a high degreeture. of horizontal Source: Libbie Mill Building A by Commonwealth Architects, Henrico, VA variation; even when the building is continuous, finishes vary intermittently to disrupt any Source: Newbury Street in Boston. Image from Dave Canton. monotony. These images are also characterized by a blurred boundary betweenPublic-Private private and Open Space 4.000 3.875 3.750 public realm. For example, buildings have glass store fronts, large awnings, and cafe furni- 122 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 ture. The scores for images of public-private open space supported the conclusions drawn from

the mixed-use development category; attendees enjoy a varied, active public realm with wide Source: Newbury Street in Boston. Image from Dave Canton. Source: Libbie Mill Building A by Commonwealth Architects, Henrico, VA sidewalks and cafe furniture. They also showed a preference for plazas with water features Public-Private Open Space over those that were empty, and did not give high scores to4.000 images of green spaces that were 3.875 3.750 The scores for images of public-private open space supported the conclusionsonly drawnminimally from furnished. Small-scale, tactile urbanism-type installations (colorful benches, the mixed-use development category; attendees enjoy a varied, active publicpainted realm withsidewalks) wide received uniformly low marks. sidewalks and cafe furniture. They also showed a preference for plazas with water features over those that were empty, and did not give high scores to images of green spaces that were only minimally furnished. Small-scale, tactile urbanism-type installations (colorful benches, Source: http://www.buildingsaltlake.com/in-pictures-urban-design-and-activated-streetscapes-in-salt-lake Source: Wharf in Boston, MA. Photo by Alexard Garvin. District Park painted sidewalks) received uniformly low marks. Streetscape 4.000 3.867 3.688 Of the images presented for streetscape, attendees assigned higher scores to more traditional

styles such as brick sidewalks and stamped crosswalks. The image Source: http://www.buildingsaltlake.com/in-pictures-urban-design-and-activated-streets- ofcapes-in-salt-lake a wider sidewalk with Source: Wharf in Boston, MA. Photo by Alexard Garvin. District Park street trees scored better than the narrow sidewalk without street trees. Streetscape 4.000 3.867 3.688 Of the images presented for streetscape, attendees assigned higher scores to more traditional styles such as brick sidewalks and stamped crosswalks. The image of a wider sidewalk with street trees scored better than the narrow sidewalk without street trees. Source: https://www.google.com/url?sa=i&rct=j&q=&esrc=s&source=images&cd=&ved=0ahUKEw- jTo8Cnh4HSAhVHLSYKHTKfAM0QjxwIAw&url=http%3A%2F%2Fnacto.org%2Fpublication%2Furban-street-design-guide%2Fstreet-design-elements%2Fsidewalks%2F&bvm=bv.146496531,d.amc&psig=AFQjCNHpuzaIhg- d84iBe9AF7cImhBeAO7Q&ust=1486662430605655 Source: http://land8.tumblr.com/post/73417639774

February 2017 Source: https://www.google.com/url?sa=i&rct=j&q=&esrc=s&source=images&cd=&ved=0ahUKEw- jTo8Cnh4HSAhVHLSYKHTKfAM0QjxwIAw&url=http%3A%2F%2Fnacto.org%2Fpublication%2Furban-street-design-guide%2Fstreet-design-elements%2Fsidewalks%2F&bvm=bv.146496531,d.amc&psig=AFQjCNHpuzaIhg- d84iBe9AF7cImhBeAO7Q&ust=1486662430605655 Source: http://land8.tumblr.com/post/73417639774

February 2017 Visual Preference Survey Results

Multifamily Residential 3.688 3.667 3.500 Attendees gave images of higher-density residential development greater scores than images of lower-density residential development. Traditional forms (rectilinear with uniform breaks) and finishes (wood clapboarding, brick, or stone) scored better than thoseVisual that were more Preference Survey Results Visualcontemporary in style. PreferenceThis said, images depicting developments Survey with a mixture of tradition- Results al finishes-–a modern twist-–did rank well. Multifamily Residential 3.688 3.667 4. Plan Objectives3.500 Multifamily Residential Attendees gave images of higher-density residential development3.688 greater scores than images 3.667 3.500 of lower-density residential development. Traditional forms (rectilinear with uniform breaks) Attendees gave images of higher-density residential development greater scores than images

and finishes (wood clapboarding, brick, or stone) scored better than those that were more Source: Eitel Building City Apartments in Minneapolis, MN by BKV Group Source: Loft Lawrence, MA Five50 Apartments by The Architectural Team, of lower-density residential development. Traditional forms (rectilinear with uniform breaks) contemporary in style. This said, images depicting developments with a mixture of tradition- and finishes (wood clapboarding, brick, or stone) scored better than those that were more Offices al finishes-–a modern twist-–did rank well. 3.938 3.750 3.750 contemporary in style. This said, images depicting developments with a mixture of tradition- alThe finishes-–a favored officemodern imagestwist-–did offered rank no well. indication of a preferred density; highest-ranked images varied greatly in scale. In all cases however, the building occupied the full parcel, with edges extending fully to meet the sidewalk. First floors were highly permeable, with ample entrances and windows. Preferred images were all also united in design strategies, such as Source: Eitel Building City Apartments in Minneapolis, MN by BKV Group Source: Loft Lawrence, MA Five50 Apartments by The Architectural Team, Fall River Downtown Redevelopment Plan River Downtown Redevelopment Fall higher elevations that were offset, that facilitated a human-scaled environment. As with res- Source: Eitel Building City Apartments in Minneapolis, MN by BKV Group 3.938 Source: Loft Lawrence, MA Five50 Apartments by The Architectural Team, 3.750 3.750 idential developments, attendees exhibited a preference for more traditionalOffices building forms Officesand finishes. They did assign high scores however to images with traditionalThe forms favored on officethe images offered no indication of a preferred3.938 density; highest-ranked im- 3.750 3.750 ages varied greatly in scale. In all cases however, the building occupied the full parcel, with Thelower favored stories andoffice more images modern offered styles noabove. indication of a preferred density; highest-ranked im- Source: Arc Light Co by HKS Architects in SF, CA Source: Arc Light Co by HKS Architects in SF, edges extending fully to meet the sidewalk. First floors were highly permeable, with ample CO 8 Headquarters Region Architects in Denver, by Zimmer Gunsul Frasca Source: EPA ages varied greatly in scale. In all cases however, the building occupied the full parcel, with entrances and windows. Preferred images were all also united in design strategies, such as edgesMixed-Use extending fully Development to meet the sidewalk. First floors were highly permeable, with ample 4.438 4.250 4.125 MIXED-USE DEVELOPMENT Fall River Downtown Redevelopment Plan River Downtown Redevelopment Fall higher elevations that were offset, that facilitated a human-scaled environment. As with res- entrances and windows. Preferred images were all also united in design strategies, such as On the whole, images depicting mixed-use projects scored much higher thanidential those developments, exhib- attendees exhibited a preference for more traditional building forms On the whole, images depicting mixed-use projects

Fall River Downtown Redevelopment Plan River Downtown Redevelopment Fall higher elevations that were offset, that facilitated a human-scaled environment. As with res- identialiting just developments, residential development attendees exhibited or just office a preference development. for more traditionalThe favoriteand building finishes.images forforms the They did assign high scores however to images with traditional forms on the scored much higher than those exhibiting just residential andmixed-use finishes. development They did assigncategory high were scores of uniformly however tolower images density with (twotraditional to lowerfour formsstories) stories on than andthe more modern styles above. development or just office development. The favorite Source: Arc Light Co by HKS Architects in SF, CA Source: Arc Light Co by HKS Architects in SF, lowerthe images stories selected and more for modernthe previous styles categories. above. They also show a high degree of horizontal CO 8 Headquarters Region Architects in Denver, by Zimmer Gunsul Frasca Source: EPA variation; even when the building is continuous, finishes vary intermittently to disrupt any images for the mixed-use development category were of Source: Arc Light Co by HKS Architects in SF, CA Source: Arc Light Co by HKS Architects in SF, Source: EPA Region 8 Headquarters by Zimmer Gunsul Frasca Architects in Denver, CO 8 Headquarters Region Architects in Denver, by Zimmer Gunsul Frasca Source: EPA monotony. These images are also characterized by a blurred boundary betweenMixed-Use private and Development 4.438 uniformly 4.250lower density (two to four stories) than4.125 the Mixed-Usepublic realm. For example, Development buildings have glass store fronts, large awnings,On and the cafe whole, furni- images depicting mixed-use projects scored much4.438 higher than those exhib- 4.250 4.125 images selected for the previous categories. They also ture. On the whole, images depicting mixed-use projects scored much higher thaniting those just residentialexhib- development or just office development. The favorite images for the show a high degree of horizontal variation; even when Source: Newbury Street in Boston. Image from Dave Canton. Source: Libbie Mill Building A by Commonwealth Architects, Henrico, VA iting just residential development or just office development. The favoritemixed-use images developmentfor the category were of uniformly lower density (two to four stories) than the building is continuous, finishes vary intermittently to mixed-usePublic-Private development category Open were Space of uniformly lower density (two to thefour images stories) selected than for the previous categories. They also show4.000 a high degree of horizontal 3.875 3.750 disrupt any monotony. These images are also characterized the images selected for the previous categories. They also show a high degreevariation; of horizontal even when the building is continuous, finishes vary intermittently to disrupt any The scores for images of public-private open space supported the conclusions drawn from by a blurred boundary between private and public realm. variation; even when the building is continuous, finishes vary intermittentlymonotony. to disrupt These any images are also characterized by a blurred boundary between private and the mixed-use development category; attendees enjoy a varied, active public realm with wide For example, buildings have glass store fronts, large monotony. These images are also characterized by a blurred boundary betweenpublic privaterealm. andFor example, buildings have glass store fronts, large awnings, and cafe furni- sidewalks and cafe furniture. They also showed a preference for plazas with water features public realm. For example, buildings have glass store fronts, large awnings,ture. and cafe furni- awnings, and café furniture. Source: Newbury Street in Boston. Image from Dave Canton. over those that were empty, and did not give high scores to images of green spaces that were PUBLIC-PRIVATE OPEN SPACE Source: Libbie Mill Building A by Commonwealth Architects, Henrico, VA ture.

only minimally furnished. Small-scale, tactile urbanism-type installations (colorful benches, - Source: Libbie Mill Building A by Commonwealth Architects, Henrico, VA Source: Newbury Street in Boston. Image from Dave Canton. painted sidewalks) received uniformly low marks. Public-PrivateThe Open scores Space for images of public-private open space 4.000 3.875 3.750 Public-Private Open Space The scores for images supportedof public-private the openconclusions space supported drawn4.000 the from conclusions the mixed-usedrawn from 3.875 3.750 the mixed-use developmentdevelopment category; attendeescategory; enjoy attendees a varied, activeenjoy public a varied, realm withactive wide

The scores for images of public-private open space supported the conclusions drawn from Source: http://www.buildingsaltlake.com/in-pictures-urban-design-and-activated-streetscapes-in-salt-lake Source: Wharf in Boston, MA. Photo by Alexard Garvin. District Park the mixed-use development category; attendees enjoy a varied, active publicsidewalks realm with and widecafe furniture.public They realm also with showed wide a sidewalkspreference forand plazas cafe withfurniture. water features They sidewalksStreetscape and cafe furniture. They also showed a preference for plazas withover water those features that were empty,also showedand did nota preferencegive high scores for to plazas4.000 images withof green water spaces features that were 3.867 3.688 over those that were empty, and did not give high scores to images of greenonly spaces minimally that were furnished. over Small-scale, those that tactilewere empty,urbanism-type and did installations not give (colorfulhigh scores benches, to Of the images presented for streetscape, attendees assigned higher scores topainted more traditional sidewalks) received uniformly low marks. onlystyles minimally such as brick furnished. sidewalks Small-scale, and stamped tactile crosswalks. urbanism-type The image installations of a wider (colorful sidewalk benches, with images of green spaces that were only minimally furnished. paintedstreet trees sidewalks) scored betterreceived than uniformly the narrow low sidewalk marks. without street trees. Small-scale, tactical urbanism-type installations (colorful capes-in-salt-lake Source: Wharf in Boston, MA. Photo by Alexard Garvin. District Park benches, painted sidewalks) received uniformly low marks. Source: http://www.buildingsaltlake.com/in-pictures-urban-design-and-activated-streets

Streetscape Source: http://www.buildingsaltlake.com/in-pictures-urban-design-and-activated-streetscapes-in-salt-lake Source: Wharf in Boston, MA. Photo by Alexard Garvin. District Park 4.000 3.867 3.688 - - STREETSCAPE Streetscape Of the images presented for streetscape, attendees assigned higher4.000 scores- to more traditional 3.867 3.688 styles such as brick sidewalks and stamped crosswalks. The image of a wider sidewalk with

Of the images presented for streetscape, attendees assigned higher scores to more traditional Source: https://www.google.com/url?sa=i&rct=j&q=&esrc=s&source=images&cd=&ved=0ahUKEw- jTo8Cnh4HSAhVHLSYKHTKfAM0QjxwIAw&url=http%3A%2F%2Fnacto.org%2Fpublication%2Furban-street-design-guide%2Fstreet-design-elements%2Fsidewalks%2F&bvm=bv.146496531,d.amc&psig=AFQjCNHpuzaIhg- d84iBe9AF7cImhBeAO7Q&ust=1486662430605655 Source: http://land8.tumblr.com/post/73417639774 Of the images presented for streetscape, attendees assigned styles such as brick sidewalks and stamped crosswalks. The image of a widerstreet sidewalk trees scored with better than the narrow sidewalk without street trees. higher scores to more traditional styles such as brick street trees scored better than the narrow sidewalk without street trees. February 2017 sidewalks and stamped crosswalks. The image of a wider sidewalk with street trees scored better than the narrow sidewalk without street trees. Source: https://www.google.com/url?sa=i&rct=j&q=&esrc=s&source=images&cd=&ved=0ahUKEw- jTo8Cnh4HSAhVHLSYKHTKfAM0QjxwIAw&url=http%3A%2F%2Fnacto.org%2Fpublication%2Furban-street-design-guide%2Fstreet-design-elements%2Fsidewalks%2F&bvm=bv.146496531,d.amc&psig=AFQjCNHpuzaIhg- d84iBe9AF7cImhBeAO7Q&ust=1486662430605655 Source: http://land8.tumblr.com/post/73417639774

Source: https://www.google.com/url?sa=i&rct=j&q=&esrc=s&source=images&cd=&ved=0ahUKEw jTo8Cnh4HSAhVHLSYKHTKfAM0QjxwIAw&url=http%3A%2F%2Fnacto.org%2Fpublication%2Furban-street-de sign-guide%2Fstreet-design-elements%2Fsidewalks%2F&bvm=bv.146496531,d.amc&psig=AFQjCNHpuzaIhg d84iBe9AF7cImhBeAO7Q&ust=1486662430605655 Source: http://land8.tumblr.com/post/73417639774 February 2017 February 2017 FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 123 furniture, paving treatments, planters, café seating, pocket parks or plazas.

The FRRA should work with the City to establish the following standards for public space and streetscape. Developers providing public space should ensure their amenities are consistent with these guidelines:

• Consistent pedestrian-oriented street lights and other street furniture (benches, trash bins, etc. • Banners and other signage integrated with the wayfinding and marketing strategy for the downtown. • Well-maintained planters and other landscape treatments suitable for an urban environment. • Well-maintained pocket parks and public plazas. (See Appendix J for case studies on pocket parks and other urban open spaces.)

124 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 5. Time Frame

5. Time Frame

This Plan shall take effect on the date of approval are required. While some of the capital costs by the DHCD, and shall be in effect for twenty for this project may be met by grants, loans, years from that date. or bond issues, in general, operating costs for staff and other resources must be funded by The activities described in the Implementation the appropriate entity. The FRRA and the City Plan in the Executive Summary, Section 4. must provide the required resources to fulfill Objectives and Sections 8-12 are anticipated to their respective roles in the implementation of take place over a period of twenty or more years, this plan. The proposed activities in this plan according to the anticipated phasing schedule will require an increase in staff for the City's in this section. Some of the proposed activities Planning Department. are dependent upon market conditions and/ or the actions of other entities, including City Should the FRRA's development activities boards, committees, and departments and state include income-producing properties, over agencies. This phasing schedule, therefore, is an time, operational needs could be met, in part, estimate of when certain actions are likely and from the revenue stream from leased properties. may shift depending on these factors. The FRRA should undertake regular review of Phase I activities should be completed within the timeline and the proposed actions to ensure the first 2-5 years. Phase II activities should be that the goals of this urban renewal plan are met completed within 5-10 years. Phase III activities by the actions and to consider whether this plan should be completed within 10-20 years. should be amended to reflect changes in goals or completed actions. As noted in the Executive Summary, in order for each identified group to be an effective partner, appropriate staffing and funding resources

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 125 6. Financial Plan

The estimated revenues and expenditures in this PROJECT REVENUES: SOURCES PURPOSE section are based on estimates applicable as of FRRA the writing of this Urban Renewal Plan. It is important to note that over the twenty-year life Available Funds Any of an urban renewal plan, costs will shift based Bonding Development; public infrastructure on the economic and market conditions at the Sale or lease of developed properties Any time of implementation. City of Fall River Sources of revenue are identified based on CDBG Restricted by terms of grant known existing sources; these sources will also Chapter 90 Highways change in response to both economic and Commonwealth of Massachusetts and Related political conditions over the next twenty years. Legislative Appropriations Restricted by purpose of related legislation In particular, grant programs that exist now may MassWorks Public infrastructure not be available in the future. Certain sources MassHousing Workforce Housing Fund Workforce housing of revenue have a specific purpose which has New Market Tax Credits Development been identified. Others, such as historic tax Historic Tax Credits Development credits, have specific restrictions on use and Brownfields Redevelopment Fund Development eligibility. This list of revenue sources is not Commonwealth Places Place-making meant to be a comprehensive list, but indicates Federal Sources the types of resources available. As noted in the TIGER Public infrastructure Executive Summary, most of these sources are Historic Tax Credits Development for capital-related costs, not ongoing operating Brownfield Grants Development or maintenance costs.

126 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 6. Financial Plan

PROJECT EXPENDITURES AMOUNT

Public Improvements $5,000 per space (surface) Public Parking $25,000 per space (structured) Harborside Park $0.5-1 million Total Estimated Public Improvements

Additional Planning Activities Parking and Circulation Study $100-$250,000 depending on scope Total Additional Planning Activities

Project Costs Acquisitions approximately $9 million Per current Assessor's Valuation Appraisals Per Project $5,000-12,000 Relocation Expenses Per Project $5,000-50,000 Planning, legal, financial, and administrative costs Per Project $15,000-$75,000 Total Estimated Project Costs $11 million Based on all identified acquisitions; does not include the cost of construction

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 127 7. Requisite Municipal Approvals

This section contains the formal records of the following required actions:

• Vote of the FRRA to support the Plan and move it into the approval process, at a meeting held on January 10, 2018. • Determination of conformance with the Fall River Master Plan (2009-2020) by the Fall River Planning Board, at a meeting held on xx, 2018. • Opinion of Counsel for the FRRA/City Solicitor/both, dated xx, 2018. • Vote of the Fall River City Council to approve the plan for submission to DHCD, at a meeting held on xx, 2018.

Appendix E: Public Meeting Minutes and Notes contains the minutes from each of the meetings noted above.

In addition, the Massachusetts Historical Commission receive notice of the public hearing held by the City Council on xx, 2018.

128 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 7. Requistie Municipal Approvals

7.1 Fall River Redevelopment Authority

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FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 129 7.2 Planning Board

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130 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 7. Requistie Municipal Approvals

7.3 Opinion of Counsel for the FRRA/City Solicitor

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FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 131 7.4 Vote of the City Council

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132 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 7. Requistie Municipal Approvals

7.5 Massachusetts Historical Commission

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FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 133 8. Site Preparation

Certain sites have been identified inSection who acquire land from the FRRA. As noted in 2. Characteristics as either sites that have Section 11 Redeveloper's Obligation, the FRRA environmental risks or have had such risks in will enter into a Land Disposition Agreement the past. Development of any of these sites must (LDA) with the preferred developer. The LDA follow the relevant requirements of the EPA and will control the conditions under which the land MassDEP. However, the downtown is an urban is conveyed and developed. Such conditions will environment, and not all sites with hazardous detail required site preparation, including any materials may have been identified. Buildings needed mitigation of hazardous environmental built prior to 1978 may have lead paint either conditions. in the material or the surrounding soil and older buildings may also have asbestos. The potential for hazardous materials should be evaluated on a case-by-case basis prior to the commencement of the project.

Many of the streets have a significant slope. Such a slope can be an asset by allowing parking to be tucked underneath an upper story, if the slope is in the right direction relative to the principal façade. No significant reconfiguration of the topography is anticipated as part of the activities of this Urban Renewal Plan.

This plan assumes that all site preparation will be undertaken by the developer or developers

134 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 9. Public Improvements

9. Public Improvements

• Tentative Fall 2020 – South Main Street South Coast Rail to encourage more public Streetscape Improvements (from Columbia to Poccasset); North transportation. Main (from Bedford to Cherry) The City has already begun a program of The FRRA owns the Third Street Parking • Tentative Fall 2021 – Rock Street (from streetscape improvements. The City should Garage and the flat surface parking lot east of Bedford to Cherry) create a plan to maintain these streetscape the garage. As the garage approaches the end improvements on a regular basis once installed. The streetscape improvements scheduled for of its useful life, possibilities for concentrated Enhancements will support additional 2019, 2020, and 2021 may be reordered. mixed use development (parking, residential, investment from private developers. and office/retail) should be given serious consideration. This site is at the very core of Streets targeted for improvement include the Public Parking downtown, adjacent to the SRTA Bus Station, following: and has easy highway access. As existing buildings within the downtown are • Tentative Completion Fall 2018 – Pur- redeveloped, new uses will place pressure on the chase Street (from Bedford to Cherry); current parking supply. In the short-term, the Public Open Space Bank Street (from Purchase to Green); FRRA could acquire and manage vacant lots for Columbia Square (intersection of Co- surface parking. Although structured parking As noted in Section 2 Characteristics, the lumbia and South Main) is a long-term solution, as discussed in Section Downtown has little outdoor gathering space. • Tentative Completion Fall 2018 – East 4. Objectives, rapidly developing technologies The FRRA has made an effort to experiment Main (from South Main to Dwelly) might make such structures obsolete before with programming on the Old Second Street • Tentative Fall 2019 – Bedford Street the bond is paid in full. In the near-term, a Pedestrian Walkway, including food trucks. (from North Main to 13th) better solution might be to partner with the Major landscaping enhancements are scheduled City and developers to encourage other parking to begin in Spring 2018. This plan recommends management strategies, such as shared parking additional public space, or the creation of resources and to work with the SRTA and public/private space as part of the public

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 135 amenities required of new development in the the linkage, and afford spectacular views of MassDevelopment to be considered for this area. Battleship Cove. program.

However, City Hall itself has existing Planning should also focus on the vacant land underutilized plazas. Treating City Hall as a connecting the Bank Street Armory with the Daylighting the Quequechan connector between North Main Street and Public Library, which has great potential for South Main Street and between Purchase outdoor public use and which should not be River Street and the Old Second Street Pedestrian resigned to a fate as a parking lot. Another popular idea from the public process Walkway would include programming activity was to daylight – or open to public view – Planning for this neighborhood should be to draw people to City Hall for food, festivals, the Quequechan River. In the short term, comprehensive and inclusive and could take its public art, and other engagement strategies to daylighting any significant portion of the river, cue from the BETA Group's January 11, 2016, introduce people to this otherwise empty area. which is contained in an underground culvert Harborside Neighborhood District Enhancement The view from City Hall over the Taunton River throughout almost the entire project area, does Plan proposal. should be part of any programming for the not seem practical or feasible. However, a series plazas around City Hall. of signpost interpretive panels and markers MassDevelopment sponsors a fellowship establishing a historic Quequechan River Enhancement of so-called "Harborside Park" program as part of their Transformative walking trail that tracks the River through (vacant land north of Central Street) as open Development Initiative. The Fellow (usually the downtown to its mouth at the Taunton space/recreation land, and as a link in the a mid-career planning professional) is placed River would be a way of acknowledging the chain of connection between waterfront and by MassDevelopment in a Gateway City for a importance of the Quequechan River to the downtown along the Central/Green/Bank three-year period. Investigating how to create history of Fall River. This could include public Street corridor should be given top priority. and program open space in the Harborside access to the two areas within the project This should include serious consideration of Neighborhood and elsewhere in the Downtown boundaries where small sections of the Falls of expanding Harborside Park by acquiring parcels would be an appropriate project assigned to Fall the Quequechan are currently exposed – one to the east to increase open space, enhance River. The City must submit an application to

136 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 9. Public Improvements

to the east of Ironworks Mills No. 6 and No. of Main Street. The provision of a park at this 7, and one in the courtyard of that complex. location would be a great amenity for a possible The Fall River Waterfront Urban Renewal Plan residential development at the People, Inc site contains additional strategies for activating the or at the combined sites of the Third Street space around the mouth of the Quequechan Parking Garage and the flat surface parking lot River. to the east of the garage. This project would require significant funding and would probably include a combination of funds and approvals New City Hall “Deck” at the City, state, and federal levels. It should be noted that the original plan for City Hall One idea that appeared during the public input included a parking deck spanning I-195 at this process was to deck over the section of I-195 location which of course was never built. adjacent City Hall that is bounded by Third Street, South Frontage Road, North Frontage Road, and Fourth Street. I-195 is below grade at this point, so the decking would serve to join the city without disrupting the roadway. City Hall does connect the two halves of Main Street, but the design of City Hall does not create a direct relationship with a pedestrian between the two sides. Suggestions for the decked area include a combination of public space and building, to create a more attractive entrance to City Hall, a gathering spot for people, and an extension of the link between the two sides

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 137 10. Relocation

If the FRRA acquires all parcels identified for • Prevent the closure of business the at acquisition of the property. However, acquisition, the estimated number of businesses DHCD recommends filing the relocation plan As required by 760 CMR 12.00, the FRRA that may be displaced is approximately 18. at least 180 days in advance of the beginning will establish a relocation advisory agency This plan does not anticipate the displacement of relocation activities to allow sufficient review prior to any acquisitions. The FRRA will file of residential units. These numbers are of the plan and to accommodate the 120- a relocation plan with the Relocation Bureau estimated based on a visual survey undertaken day Notice to Vacate required for permanent (part of DHCD) for any project that displaces in December 2017 and information from the displacement of a resident. the occupants of more than five dwelling units City Assessor's database. Relocation may be or business units. This plan recommends a pre- permanent or temporary, depending on the filing consultation with the Relocation Bureau. particular acquisition.

The relocation plan must meet the requirements The FRRA will prepare a relocation plan for of M.G.L. 79A, the process outlined by persons and/or businesses that must be relocated 760 CMR 27.00, and federal laws related because of any public acquisition of land to to relocation, including 49 CFR Part 24, as fulfill the public purpose of this Urban Renewal applicable. The Plan must be approved by the Plan. The FRRA commits to a process that will Relocation Bureau before the occupants are accomplish the following goals, established by displaced by the acquisition. 760 CMR 27.00:

• A fair, equitable, and consistent treat- The plan must be filed with the Bureau ment of the persons or businesses who of Relocation at least 45 days before the are displaced through the acquisition anticipated date of the acquisition of the property, along with notification of the affected • Minimize the adverse impact of dis- occupants of their rights and the available placement on the residents and busi- relocation assistance and payment prior to nesses and their community

138 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 11. Redeveloper's Obligation

11. Redeveloper’s Obligation

Redevelopers within the urban renewal area will • How the proposed development will The FRRA will establish the following be subject to the City’s zoning ordinance, as may meet the objectives of this Urban Re- requirements within the LDA: be revised according to the recommendations of newal Plan. • Development of the parcel(s) must fol- this Plan. Redevelopers of all property within • The parties involved (ownership, devel- low the relevant design guide¬lines in the urban renewal area will also be subject to the opment team, etc.) this Urban Renewal Plan. urban design guidelines in Section 4.3 Design • Any public improvements required for Guidelines. • All improvements must be completed the proposed project in accordance with the objectives of this The FRRA may sell or lease land it owns • The proposed timeline to completion of Urban Renewal Plan. within the boundary of this Urban Renewal construction • All improvements must be completed Plan to a redeveloper or redevelopers who will • Pro forma for the project and available within a reasonable timeframe. undertake a project on the site. Such sale or financial resources • The project will be subject to the City’s lease shall be undertaken in accordance with • Relevant experience and related refer- relevant project approval process. the disposition process outlined in Section 12. ences Disposition. The FRRA will issue an RFP to In addition, the FRRA may require performance identify potential redevelopers. The RFP will • Proposed job creation, including tem- standards relative to the timing and completion require that any project meet the objectives of porary and permanent jobs of construction within the LDA. this Urban Renewal Plan as described in Section As required by 760 CMR 12.02(11), the 4. Objectives. Response to the RFP must include DHCD must approve the LDA. selected redeveloper will be subject to an LDA. a detailed narrative that includes, but is not This agreement will define any requirements limited to, the following requirements: specific to that property and any requirements • The proposed development, including the FRRA has for the development of property, proposed land uses. in general.

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 139 12. Disposition

The FRRA has not yet identified a developer The sale, lease, or development (redevelopment, or developers for the parcels listed in Table rehabilitation or new construction) of any 2-2. Any disposition must meet the relevant property controlled by the FRRA must be in requirements of M.G.L. Chapter 121B and accordance with the objectives of this Urban Chapter 30B. Under these two chapters, Renewal Plan. the sale, lease, or acquisition of residential, industrial, or commercial real property by The FRRA will periodically assess the progress a redevelopment authority engaged in the of this plan's implementation and identify development and disposition of real estate in other properties for disposition or remove any accordance with an approved plan, is exempt properties identified in the list of dispositions from public disposition procedures required of that have subsequently been developed all other local government bodies. according to the requirements of this urban renewal plan. Changes to the plan are governed However, any parcel of land to be sold or by 760 CMR 12.03, as outlined in Section 15 otherwise disposed of by the FRRA must meet Process for Future Changes. the requirements of 760 CMR 12.05. This includes an independent disposition appraisal of the parcel. The criteria for determination of the disposition price of the parcel are detailed in 760 CMR 12.05. DHCD must approve both the disposition price and the LDA between the Fall River Redevelopment Authority and the purchaser.

140 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 13. Citizen Participation

13. Citizen Participation

English-, Spanish-, and Portuguese-language • Reach out to other community mem- 13.1 Participation in Plan flyers to aid in these efforts. bers to inform them of the process and Development encourage them to participate in the All public meetings, including those with the public workshops Citizen participation in the development of this FRRA, were recorded by Fall River Government The CAG members were: Urban Renewal Plan involved the following: Television and are available for streaming, free of charge, on the organization's website, frgtv. • Jamie Karam, President and CEO, First • The appointment of, and subsequent fredtv.us. Bristol Corp. meetings with, a Citizens' Advisory Group (CAG) • Christina Catelli, Owner, Tequila Lime Roles and Responsibilities of Cantina • Two public workshops the CAG • Christopher Antao, TD Bank • An Open House on May 23, 2017, attended by Mayor Correia, FRRA The roles and responsibilities of the CAG were • Jerry Donovan, G & J Property Manage- Chairman William Kenney, and the as follows: ment Co. consultant team, followed by a two-week • Joseph Holdiman, President of Residen- • Provide input on the topics related to presentation board display in the atrium tial Commercial Services Inc. of Fall River's City Hall during which this Urban Renewal Plan a "Suggestion Box" was made available • Review and comment on materials prior The CAG met in January 2017. During this for citizens to deposit comments and to the public meetings session, members were introduced to urban renewal plan-framework and the their role suggestions • Review and comment on results received within it, the urban renewal area, and the from the public meetings The FRRA and the Fall River Planning Division consultant team's initial analysis, which advertised these efforts though a variety of • Review and comment on the draft Ur- included parking and access, infrastructure and channels. The consultant team provided ban Renewal Plan environmental conditions, economic conditions and market trends, land use and ownership,

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 141 development history and urban design. During the workshop, and (2) an interactive session of a visual preferences survey. Here, attendees this meeting, CAG members brought up the designed to engage participants and ask them were given score cards and asked to evaluate perceived scarcity of parking downtown, the to apply their knowledge of the area and the inf a series of projected images based on whether poor reputation of the downtown (particularly From they felt the image would be a good fit for Fall Bedford Avenue), frustration with one-way Subject River's downtown. A summary of the results street patterns, and a desire to involve more arts Received of this survey are available in Section 4. Plan uses. Size Objectives. Categories A second CAG meeting was planned for April The April meeting asked "What could the 2017, but was rescheduled, and later canceled, Emily K. Innes downtown be?" and explored four related due to poor weather. This meeting would have RE: 16136/16483 Fall River plans: Drafts, actions. These were access to the downtown, the focused on fit studies, implications of the DHCD, and FRRA meeting development of the South Main Street-North economic, regulatory, and circulation analyses 1/9/2018 Main Street spine, infill rehabilitation and new completed by the consultant team, and an 20 KB development, and the connection of subsidiary overview of the decisions required for the Urban corridors to the main spine. For the interactive Renewal Plan and the approval process. ormation they had just received to answer the portion of the workshop, attendees participated questions posed during the presentation. In in a data walk in which they circulated around Public Workshops both workshops, attendees were invited to presentation boards depicting key components fill out comment cards with their questions, of the consultant teams' analyses, and early The planning process involved two public concerns, and ideas relating to the Plan. drafts of the Plan. Members of the consultant workshops, one in February 2017 and a second team stood by each board and listened to in April 2017. Each workshop was divided The February public workshop featured an attendees feedback and responded to questions. into two parts: (1) a presentation that provided introduction to urban renewal plans, followed information and research about the study by the presentation of the consultant team's and posed questions to be answered during analysis. The interactive session took the form

142 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 13. Citizen Participation

Open House and Presentation criteria for blighted, decadent, and substandard Future Public Involvement conditions. Board Display Meetings of the FRRA are public meetings In an effort to hear feedback from a greater Additional meetings for the approval process and are thus subject to the Open Meeting portion of the Fall River community, the included a meeting with the Planning Board on Law of the Commonwealth of Massachusetts. consultant team worked with the Fall River xx and a meeting with City Council on xx. As described in Section 15. Process for Future Planning Division to host an Open House on Changes, a major plan update would require the Urban Renewal Plan. The Open House, Record of Public Participation the same public process as the preparation of which took place May 23, involved a speech this Urban Renewal Plan. Any use of eminent by Mayor Correia followed by questions from Materials from the CAG meetings, the public domain requires a public process, as stipulated the press. Chairman William Kenney and workshops, the Open Houses and community by Massachusetts General Laws Chapter 79 members of the consultant team then stood by meetings, and from the surveys are provided in and by the requirements of Chapter 121B, the presentation boards while attendees circulated Appendix D. Public Engagement Materials. enabling legislation for this Urban Renewal around the room. Boards remained in the City Plan. Hall Atrium for three weeks after the event and To capture the existing institutional knowledge community members were invited to review the 13.2 Participation in Project about this plan and the planning process, the materials and leave comments in a suggestion Execution FRRA will convert the CAG into a working box. The FRRA is responsible for the implementation group that can review the progress of this of this Urban Renewal Plan. urban renewal plan on an annual basis. As Approval Process: Winter 2018 more businesses, residents, and nonprofit organizations move to the area, the FRRA The FRRA met on January 10, 2018 and voted should expand this group to include additional to determine that the urban renewal area met the members, representative of the new mix of waterfront activities.

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 143 14. Massachusetts 15. Process for Future Changes: 760 CMR Environmental 12.03 Policy Act (MEPA)

The Fall River Redevelopment Authority filed Plan changes are divided into two types: a minor plan change and a major plan change. an Environmental Notification Form (ENF) under the Massachusetts Environmental Policy Act (MEPA). Appendix H contains the ENF Minor Plan Change Major Plan Change filed with the Executive Office of Energy and A minor plan change does not required approval Major plan changes require the same process as Environmental Affairs (EEA) on xx. from DHCD. However, the FRRA must submit the initial preparation of this plan: a resolution authorizing the plan change to • Evidence of public outreach DHCD for its review. DHCD defines a minor plan change as any of the following: • Determination by the Planning Board that the plan is in conformance with the 1. Granting or receiving easements for City’s comprehensive plan utilities • Approval by the City Council 2. Confirmatory takings for the purpose of title clearing DHCD must approve a major plan change. A major plan change is defined by DHCD as a 3. Tax foreclosures significant change to any of the basic elements 4. Conveying non-buildable lots of less of the approved urban renewal plan, including than 5,000 square feet to owners of characteristics, objective, public improvement, adjacent parcels redeveloper’s obligations, or disposition. This 5. Acquiring an interest in property made would include changes to the boundary of the available through a discontinuance of a plan and identifying a parcel for acquisition public way that had no previously been so identified. 6. Transfer of a property interest to or from Additional requirements are provided in 760 another public entity CMR 12.03.

144 FALL RIVER REDEVELOPMENT AUTHORITY DRAFT FEBRUARY 2018 16. Severability

16. Severability

Should any section, paragraph, or provision of the Plan be rendered unconstitutional, or invalid, such decision shall not affect the whole or any part thereof other than the part so decided to be unconstitutional or invalid.

FALL RIVER DOWNTOWN: DRAFT URBAN RENEWAL PLAN 145 FALL RIVER • DOWNTOWN URBAN • RENEWAL • PLAN Prepared for the Fall River Redevelopment Authority By Harriman • FXM Associates • Fitzgerald & Halliday