PAE - Burns and North - (SRA Report) — File 202909

OUT$$ $ $ $ $ $ $ $ $ $ $ $ THE$FUTURE$OF$THE$SOMERVILLE$ REDEVELOPMENT$AUTHORITY$ Aligning$Governance$with$Economic$Strategy$ $ Spring$2015$ Jennifer'North,'MPP'2015'&'Crosby'Burns,'MPP'2015' The$John$F.$Kennedy$School$of$Government,$Harvard$University$ Submitted$to$Somerville$Mayor$Joseph$Curtatone$ $ Advisors$ Robert$D.$Behn,$Thomas$Patterson,$Joshua$Goodman$ $

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 2$ $ ACKNOWLEDGEMENTS$ $ We$would$like$to$express$our$sincere$gratitude$to$those$whose$time$and$insights$made$this$ project$possible.$We$are$extremely$grateful$for$our$advisors—Bob$Behn,$Thomas$Patterson,$ and$Joshua$Goodman—who$provided$critical$feedback$and$support$in$producing$this$ research.$We$are$better$critical$thinkers$and$policy$analysts$as$a$result$of$their$guidance$and$ training.$$ $ We$also$owe$a$resounding$thank$you$to$Mayor$Curtatone$and$Special$Advisor$to$the$Mayor$ Andy$Offit$for$commissioning$this$report.$The$Mayor’s$commitment$to$better$governance$ and$smart$and$equitable$economic$development$have$inspired$us$to$become$more$critical$ consumers$of$municipal$planning$policy.$Similarly,$thank$you$to$Michael$Glavin,$Ed$ O’Donnell,$and$others$within$Somerville’s$Office$of$Strategic$Planning$and$Community$ Development.$Their$responsiveness$to$our$requests$and$candor$throughout$the$research$ process$made$this$project$possible.$$ $ Lastly,$we$would$like$to$take$this$opportunity$to$thank$our$mothers.$We$love$you$moms.$$ $ $ $ $ $ $ $ $ $ $ $ $ $ $ $ $ $ The'following'report'was'produced'as'part'of'a'“Policy'Analysis'Exercise,”'an'applied'master’s' thesis'required'for'all'Master'in'Public'Policy'candidates'at'the'John'F.'Kennedy'School'of' Government'at'Harvard'University.'The'Mayor'of'Somerville,'Joseph'Curtatone,'commissioned' this'report.'This'PAE'reflects'the'views'of'the'authors'and'should'not'be'viewed'as'representing' the'views'of'this'PAE's'external'client,'nor'those'of'Harvard'University'or'any'of'its'faculty.' '

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 3$ $ Table$of$Contents$ $ ACKNOWLEDGEMENTS$.............................................................................................................$2$ 1.$ EXECUTIVE$SUMMARY$........................................................................................................$4$ 2.$ INTRODUCTION$................................................................................................................$7$ 3.$ METHODOLOGY$...............................................................................................................$9$ 4.$ ASSESSING$THE$VALUE,$CAPACITY,$AND$SUPPORT$OF$THE$SRA$..............................................$11$ 5.$ POLICY$OPTIONS:$ASSESSING$THE$SCOPE$OF$ALTERNATIVES$TO$THE$SRA’S$CURRENT$MODEL$ AND$FUNCTIONS$.....................................................................................................................$21$ 6.$ ANALYSIS$AND$RECOMMENDATIONS$..................................................................................$29$ 7.$ ACTION$STEPS$–$OPERATIONALIZING$RECOMMENDATIONS$...................................................$35$ 8.$ CONCLUSION$..................................................................................................................$38$ APPENDIX$A:$QUALITATIVE$INTERVIEW$METHODOLOGY$AND$CONSENT$PROCESS$.........................$39$ APPENDIX$B:$QUALITATIVE$INTERVIEW$QUESTIONNAIRE$–$OTHER$MUNICIPALITIES$.....................$40$ APPENDIX$C:$LIST$OF$INTERVIEWEES$........................................................................................$41$ APPENDIX$D:$SOMERVISION,$IN$BRIEF$.....................................................................................$42$ APPENDIX$E:$URBAN$RENEWAL$^$HISTORY,$PURPOSE,$AND$FUNCTION$........................................$43$ APPENDIX$F:$ORGANIZATIONAL$CHART,$CITY$OF$SOMERVILLE$...................................................$46$ APPENDIX$G:$$REDEVELOPMENT$AUTHORITY$INTERVIEW$SUMMARY$............................................$47$ APPENDIX$H:$BACKGROUND$ON$SOMERVILLE$...........................................................................$50$ APPENDIX$I:$SOMERVISION$MAP$.............................................................................................$51$ REFERENCES$..........................................................................................................................$52$ $ $ $

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 4$ $ $ $ $ $ $ $ 1. EXECUTIVE$SUMMARY$$ $ Somerville$is$a$city$on$the$rise.$In$the$past$decade,$the$city$has$witnessed$significant$ economic$growth$and$community$development,$growth$and$development$that$will$accelerate$ into$the$next$decade$and$beyond.$Yet,$while$the$city’s$economic$planning$and$development$ strategies$have$matured$to$meet$the$needs$of$a$newly$thriving$city,$a$significant$part$of$its$ governance$structure$has$not.$Specifically,$the$Somerville$Redevelopment$Authority$ (“SRA”)—the$municipal$agency$charged$with$urban$renewal—has$not$fully$evolved$to$meet$ Somerville’s$economic$imperatives$and$the$goals$laid$out$in$the$city’s$master$plan,$ SomerVision.$ $ Referring$to$the$SRA,$Somerville$Mayor$Joseph$Curtatone$articulated,$“We$have$a$20th$ century$model$for$a$21st$century$growth$plan.”$As$such,$this$policy$analysis$exercise$examines$ the$optimal$governance$structure$and$processes$for$redevelopment$in$the$City$of$Somerville.$ Accordingly,$it$seeks$to$answer$the$question:$$ $ Given'Somerville’s'anticipated'and'desired'economic'development'over'the'next'two' decades,'what'are'the'optimal'structures,'organizational'processes,'and'programs'and' policies'the'Somerville'Redevelopment'Authority'could'adopt'to'facilitate'that' development?' $ Our$research$revealed$a$number$of$strengths$and$assets$the$SRA$has$at$its$disposal.$First$and$ foremost,$the$City’s$economic$planning$staff$provides$significant$technical,$legal,$and$ administrative$support,$and$in$doing$so,$it$serves$as$the$SRA’s$engine$driving$its$agenda$ forward.$Similarly,$the$city’s$planning$agencies$coordinate$relatively$effectively$with$one$ another.$Finally,$the$SRA$itself$is$composed$of$individuals$sincerely$committed$to$smart$and$ equitable$development$in$Somerville$with$strong$ties$to$the$community.$$ $ Still,$this$research$revealed$a$number$of$key$findings$in$identifying$current$deficiencies$and$ areas$of$growth$with$respect$to$the$Somerville$Redevelopment$Authority:$ $ • Finding$#1:$The$SRA$has$an$opportunity$to$enhance$its$ability$to$create$value$through$ new$programs$or$policies$in$the$context$of$accelerating$economic$development,$while$ continuing$to$safeguard$against$the$potential$abuses$of$land_taking.$$ $ • Finding$#2:$The$SRA$lacks$even$modest$amounts$of$human$and$financial$capital$to$ meet$the$changing$economic$development$needs$of$Somerville.$$ $

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 5$ $ • Finding$#3:$The$SRA$currently$lacks$sustainable$and$meaningful$platforms$for$ community$engagement$and$therefore$lacks$credibility$among$constituents.$ $ • Finding$#4:$The$SRA$exists$within$a$delicate$balance$of$power$between$the$Board$of$ Aldermen$and$the$Mayor.$ $ Perhaps$most$importantly,$the$SRA$has$not$clearly$outlined$a$mission$or$a$long_term$strategy$ with$respect$to$fulfilling$its$mission.$ $ Beyond$Somerville,$interviews$with$other$municipalities$show$that$the$Somerville$ Redevelopment$Authority$is$not$living$up$to$its$full$potential.$Our$interviews$with$ neighboring$and$comparable$municipalities$further$revealed$that$the$SRA$is$behind$the$times$ in$terms$of$operations,$governance,$and$policy:$$ $ • Finding$#5:$Redevelopment$agencies$exhibit$a$range$of$tools,$assets,$capacities,$and$ approaches$beyond$land_taking$that$help$them$stimulate$development$in$blighted$ and$underinvested$areas.$ $ • Finding$#6:$While$the$SRA$has$neither$a$budget$nor$a$fully_dedicated$staff,$other$ municipalities$use$a$variety$of$financing$tools$and$staffing$structures$to$ensure$their$ redevelopment$authorities$have$the$capacity$they$need$to$create$value.$ $ • Finding$#7:$While$most$municipalities$simply$meet$legal$requirements$with$respect$ to$citizen$engagement,$some$offer$innovative$public$engagement$tools$that$could$ potentially$enhance$the$SRA’s$ability$to$build$support$for$its$projects.$ $ Based$on$the$findings$and$analysis$in$this$report,$the$following$recommendations$will$ advance$the$goals$and$values$set$out$in$SomerVision.$To$do$so,$this$report$accompanies$these$ recommendations$with$a$series$of$action$steps$that$will$build$credibility$with$the$community,$ professionalize$the$SRA$staff,$and$streamline$the$agency’s$processes.$These$recommendations$ also$help$ensure$the$political,$financial,$and$organizational$stability$of$the$SRA$as$it$heads$ into$era$of$unprecedented$redevelopment.$ $ Recommendation$#1:$The$Mayor$and$the$Board$of$Aldermen$should$maintain$the$ organizational$structure$of$the$redevelopment$agency.$ $ Recommendation$#2:$Key$city$and$citizen$stakeholders$should$develop$and$implement$ a$strategic$plan$that$clearly$defines$the$SRA’s$mission,$goals,$and$direction.$$$ $ Recommendation$#3:$The$Mayor$and$the$Board$of$Aldermen$should$build$the$SRA’s$ capacity$through$the$appointment$of$at$least$one$fully$dedicated$staff$member.$ $ Recommendation$#4:$The$Mayor$and$the$Board$of$Aldermen$should$build$the$SRA’s$ capacity$through$modest$capitalization.$ $

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 6$ $ Recommendation$#5:$With$adequate$staffing$and$financing,$the$SRA$should$pursue$ more$nimble$and$smart$real$estate$transactions$that$create$value$for$Somerville.$ $ Recommendation$#6:$The$newly$appointed$SRA$Executive$Director$should$work$to$ proactively$engage$the$community$through$multiple$platforms.$ $ Recommendation$#7:$City$stakeholders$should$develop$a$set$of$principles$that$will$ help$guide$future$SRA$appointments.$ $ The$recommendations$in$this$report$are$a$first$step$of$a$longer$process.$Admittedly,$they$are$ not$revolutionary$ideas.$From$increasing$staffing$to$engaging$community$members,$however,$ these$seemingly$small$recommendations$have$the$potential$to$revolutionize$the$way$the$SRA$ and$City$of$Somerville$approach$redevelopment.$Inasmuch,$these$recommendations$serve$as$ a$launch$pad$for$further$discussion$as$to$what$the$SRA$is,$who$it$serves,$and$how$it$can$best$ serve$them.$$ $ On$behalf$of$the$citizens$of$Somerville,$we$hope$those$discussions$bear$fruit$in$the$form$of$a$ forward_thinking,$proactive,$and$revitalized$redevelopment$authority.$$ $ $$ $ $ $ $ $ $ $

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 7$ $ $ $ $ $ $ $ 2. INTRODUCTION$ $ Somerville$is$a$city$on$the$rise.$In$the$past$decade$alone,$the$face$of$Somerville$has$ dramatically$changed$with$the$planning,$implementation,$and$completion$of$a$number$of$ successful$and$ongoing$economic$development$projects.$In$Assembly$Square,$for$example,$ the$City$has$transformed$an$area$of$urban$decay,$which$for$decades$languished$as$a$site$of$ disinvestment$and$blight,$into$a$thriving$neighborhood$of$restaurants,$coffee$shops,$small$ businesses,$and$boutiques.$In$partnership$with$private$developers,$community$members,$and$ local$businesses,$the$City$of$Somerville$has$spearheaded$this$project$along$with$a$number$of$ other$concerted$economic$development$projects$that$aim$to$make$the$goals$of$the$City’s$ master$plan,$SomerVision,$a$reality.$SomerVision$includes$job$creation,$affordable$housing,$ growing$the$city’s$tax$base,$maintaining$Somerville’s$unique$character,$and$revitalizing$the$ city’s$blighted$neighborhoods.i$ $ The$pace$of$this$change$is$expected$to$accelerate$into$the$next$decade$and$beyond.$In$Union$ Square,$Somerville$recently$selected$a$master$developer,$which—along$with$citizen$ stakeholders$and$city$officials—will$implement$the$Union$Square$Revitalization$Plan$put$ forth$by$the$city$and$approved$by$the$state.ii$Furthermore,$the$upcoming$expansion$of$the$ Massachusetts$Bay$Transit$Authority’s$(“MBTA”)$Green$Line$into$Somerville$will$ignite$ development$throughout$the$city.$Over$the$next$five$years,$the$construction$of$six$new$“T”$ stations$will$bring$massive$growth$to$Somerville,$growing$jobs$and$increasing$access$to$mass$ transit$for$Somervillians.iii$Currently$only$15$percent$of$Somervillians$are$within$a$half_mile$of$ a$transit$center.$$With$the$expansion$of$the$Green$line,$that$number$will$increase$to$85$ percent.iv$ $ In$short,$Somerville$is$in$the$midst$of$a$transformation$from$a$city$beleaguered$by$ stagnation$and$emigration$to$a$modern$and$revitalized$city$that$Boston$Magazine$ dubbed$“one$of$the$best$places$to$live”$in$Massachusetts.v$But$while$the$city’s$economic$ planning$and$development$departments$have$matured$to$meet$the$needs$of$a$newly$thriving$ city,$a$significant$part$of$its$governance$infrastructure$has$not.$Specifically,$the$Somerville$ Redevelopment$Authority$(“SRA”)—the$municipal$agency$charged$with$urban$renewal$and$ revitalization—has$not$fully$evolved$to$meet$Somerville’s$economic$imperatives$and$the$goals$ laid$out$in$the$city’s$master$plan,$SomerVision.$Due$to$Somerville’s$small$geographic$size$and$ limited$undeveloped$areas,$achieving$these$goals$requires$a$transaction_based$approach$to$ land$use$and$development,$an$approach$the$SRA$is$not$currently$equipped$to$carry$forward.$$ $ Referring$to$the$SRA$in$particular,$Mayor$Curtatone$notes:$“We$have$a$20th$century$model$for$ a$21st$century$growth$plan.”vi$It$is$with$this$in$mind$that$Mayor$Curtatone$commissioned$this$

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 8$ $ report$with$the$stated$goal$of$assessing$the$governance,$operations,$processes,$and$policies$of$ the$SRA.$What$follows$includes$our$assessment$of$the$activities$of$the$SRA,$an$analysis$of$ other$redevelopment$authorities$throughout$Massachusetts,$and$a$set$of$recommendations$ that$will$enhance$the$agency’s$ability$to$carry$out$Somerville’s$economic$development$agenda$ while$balancing$Somerville’s$community$values$and$goals$as$laid$out$in$SomerVision.$ $ To$assess$how$the$SRA$might$better$serve$the$city$of$Somerville,$we$conducted$a$series$of$ qualitative$interviews$with$City$of$Somerville$officials,$Somerville$City$Council$Members,$ citizen$activists,$redevelopment$and$planning$experts$and$redevelopment$authorities$across$ the$Commonwealth.$We$further$investigated$the$relevant$planning$and$urban$renewal$ literature$for$best$practices$in$the$area$of$redevelopment.$$ $ Our$internal$and$external$findings$indicate$gaps$in$two$interrelated$areas.$$ $ First,$the$SRA$remains$under_resourced$in$terms$of$human$and$financial$capital.$Rather$than$ employ$a$staff$of$its$own,$the$city’s$Office$of$Strategic$Planning$and$Community$ Development$(“OSPCD”)$supports$the$SRA’s$urban$planning$and$redevelopment$initiatives.$ Further,$the$SRA$lacks$sufficient$and$flexible$capital$to$engage$in$nimble$real$estate$ transactions$and$enhanced$community$engagement.$$ $ Second,$the$SRA$and$city’s$broader$economic$development$apparatus$lack$a$certain$degree$of$ credibility$among$Somerville$citizens.$This$is$especially$true$of$citizen$activists,$who$became$ frustrated$with$the$SRA$during$deliberations$of$the$Union$Square$master$developer$last$year,$ a$frustration$that$has$continued$into$2015.$The$city$has$made$considerable$efforts$to$ incorporate$community$concerns$into$its$development$decisions.$Still,$dissatisfaction$persists$ as$evidenced$by$continued$concern$and$often_outright$opposition$to$the$Union$Square$ revitalization$project.$ $ Given$these$findings,$we$identified$a$number$of$tools,$resources,$and$structures$that$other$ municipal$redevelopment$authorities$employ$that$would$significantly$enhance$the$SRA’s$ ability$to$fulfill$its$mandate.$Tailored$specifically$to$the$context$of$Somerville,$these$ recommendations$include$capitalization$models,$staffing$options,$and$community_based$ engagement$initiatives$aimed$at$professionalizing$the$SRA$and$rebuilding$its$credibility$with$ the$community.$$ $ The$SRA$is$and$will$remain$a$cornerstone$of$Somerville’s$economic$development$apparatus.$ With$rapid$development$and$an$increasingly$active$citizenry,$it$remains$more$important$than$ ever$to$critically$examine$the$SRA$and$how$it$might$better$serve$the$citizens$of$Somerville.$ $ $ $ $ $ “The'SRA'is'and' will'remain'a' cornerstone'of' Somerville’s' economic' development' apparatus.”

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 9$ $ $ $ $ $ $ 3. METHODOLOGY$ $ To$assess$the$organizational$structure,$processes,$and$projects$the$SRA$should$adopt,$our$ research$primarily$relied$on$qualitative$interviews$with$Somerville$city$officials$along$with$ economic$development$experts$in$local$municipalities,$academia,$and$planning$associations.$$ $ Additionally,$our$research$relied$on$a$variety$of$secondary$sources$including$academic$ literature,$government$documents$at$both$the$municipal$and$state$level,$guidelines$and$ reports$produced$by$planning$associations,$periodical$articles,$and$televised$news$stories$ covering$Somerville’s$economic$development$and$local$politics.$$ $ $ $ $ $ $ $ $ $ $ Generally,$we$conducted$our$research$in$three$overlapping$phases.$$ $ Phase$1$ In$the$first$phase,$we$focused$on$understanding$the$history,$functions,$processes,$and$ organizational$structure$of$the$SRA.$Specifically,$we$examined$the$SRA$in$the$context$of$the$ current$development$agenda$for$the$City$of$Somerville$and$the$desires,$values,$and$ preferences$of$the$citizens$of$Somerville,$found$in$SomerVision.$This$provided$critical$ foundational$knowledge$for$understanding$where$the$SRA$is$today,$thereby$allowing$us$to$ suggest$where$it$should$go$tomorrow.$$ $ In$this$phase,$we$interviewed$government$representatives$from$the$City$of$Somerville,$the$ Somerville$Redevelopment$Authority,$and$Somerville$citizens$who$are$members$of$the$ Citizen$Advisory$Committee,$a$committee$commissioned$by$the$mayor$to$advise$on$ development$issues$in$the$city.$It$also$included$a$thorough$analysis$and$understanding$of$the$ city’s$recently$adopted$master$plan,$SomerVision$(See$Appendix$D:$SomerVision,$in$short).$ Lastly,$we$familiarized$ourselves$with$existing$urban$renewal$plans$and$projects$around$ Somerville.$ $ Phase$2$ For$a$discussion$of$qualitative$interview$methodology,$complete$list$of$references,$ and$a$full$list$of$interviewees,$please$see:$$ ' • Appendix'A:'Qualitative'Interview'Methodology'and'Consent'Process' • Appendix'B:'Qualitative'Interview'Questionnaire'–'Other'Municipalities'' • Appendix'C:'List'of'interviewees'

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 10$ $ In$the$second$phase,$we$conducted$a$thorough$review$of$the$relevant$planning,$design,$and$ development$literature$to$identify$well_documented$best$practices$of$redevelopment$ authorities$and$urban$renewal$more$broadly.$Similarly,$this$literature$review$also$examines$ publicly$available$documents$from$umbrella$organizations$of$redevelopment$associations$for$ their$recommendations$on$governance$and$operations.$This$phase$included$interviews$with$ academic$experts$on$municipal$government$and$economic$development.$$ $ Phase$3$ In$the$third$phase,$we$investigated$redevelopment$authorities$and$economic$development$ agencies$in$other$municipalities,$prioritizing$cities$with$similar$economic,$demographic,$and$ geographic$characteristics$to$Somerville.$We$conducted$interviews$with$government$ representatives$from$other$municipalities$to$identify$best$practices$in$use$today$and$provide$ examples$of$alternative$organizational$structures$and$management$processes$for$economic$ development.$ $ Applying$appropriate$frameworks$ Finally,$we$revisited$literature$from$public$management$and$policy$analysis$courses$to$assess$ what$might$be$the$most$appropriate$framework$through$which$to$analyze$various$policy$ options$and$construct$appropriate$recommendations.$ $ $ $

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 11$ $ $ $ $ $ $ 4. ASSESSING$THE$VALUE,$CAPACITY,$AND$SUPPORT$OF$THE$SRA$$ $ In$the$United$States,$cities$began$to$charter$redevelopment$authorities$in$the$1950s$and$1960s$ in$response$to$a$wave$of$federal$initiatives$and$corresponding$funding$to$promote$municipal$ urban$renewal.vii$While$no$two$redevelopment$authorities$appear$alike,$all$redevelopment$ agencies$are$authorized$to$develop$and$implement$urban$renewal$plans,$including$land$ acquisition$by$eminent$domain$in$areas$that$have$been$determined$as$“blighted,$decadent,$or$ substandard.”viii$$ $ Here$we$summarize$the$general$structure,$operations,$and$policy$tools$of$the$SRA.$A$one_ page$addendum$then$outlines$the$major$redevelopment$projects$underway$in$the$City$of$ Somerville.$ $ $ $The$Membership$and$Role$of$the$Somerville$Redevelopment$Authority$ Approximately$four$to$five$decades$ago,$the$City$of$Somerville$created$the$Somerville$ Redevelopment$Authority$(“SRA”),$whose$charter$is$authorized$under$Massachusetts$General$ Law$Chapter$121B.$In$accordance$with$state$law,$the$SRA$consists$of$five$members$serving$ staggered$five_year$terms.$The$Mayor$of$Somerville$appoints$four$members$of$the$SRA$who$ are$then$considered$and$either$approved$or$rejected$by$the$Somerville$Board$of$Aldermen.$ The$Department$of$Housing$and$Community$Development$appoints$the$remaining$ member.ix$ $ As$of$March$2015,$the$SRA$is$composed$of$three$members$including:$Nancy$Busnach$(Chair),$ Iwona$Bonney$(state$appointee),$and$William$F.$Gage.$There$are$currently$two$vacancies$on$ the$five_member$SRA$following$the$retirement$of$Michael$Dwyer$and$the$death$of$James$ McCarthy,$who$prior$to$his$membership$on$the$SRA$served$on$the$Board$of$Aldermen.$$ $ Like$most$other$redevelopment$authorities$across$the$United$States,$the$SRA$is$the$City’s$ decision_maker$with$regards$to$urban$renewal$plans$and$development$projects$within$ designated$urban$renewal$areas.$Specifically,$the$SRA’s$website$reads:$ $ The'City’s'urban'renewal'plans'have'traditionally'been'implemented'through'the'SRA.' G.L.'c.'121B'[Massachusetts'state'code]'gives'redevelopment'authorities'the'power'to' declare'that'an'area'is'a'substandard,'decadent,'and/or'blighted'open'area,'to'prepare'an' urban'renewal'plan'for'its'redevelopment'and'to'do'eminent'domain'takings'to'further' the'purposes'of'the'plan.x' '

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 12$ $ Figure$1$depicts$a$summary$of$the$redevelopment$process.$(For'more'information'on'the' urban'renewal'process,'please'refer'to'Appendix'4:'Urban'Renewal'–'History,'Purpose,'and' Function)'$$ $ $ $ $ $ The$strongest$tools$available$to$redevelopment$authorities$are$the$ability$to$take$private$ property$by$eminent$domain$and$to$assemble$parcels$of$sufficient$size$for$redevelopment$by$ a$private$developer.$In$other$words,$the$SRA$has$the$ability$to$acquire$privately$owned$land$ for$public$use,$to$eliminate$substandard,$decadent$or$blighted$open$areas.$Notably,$often$the$ threat$of$eminent$domain$is$as$strong$as$the$use$of$the$practice$itself.$However,$this$is$just$ one$of$the$many$tools$that$redevelopment$authorities$have$to$promote$redevelopment,$as$ further$explained$in$subsequent$sections.$ $ In$short,$the$SRA’s$development$decisions$can$have$a$substantial$impact$on$the$local$ economy$and$the$makeup$of$the$Somerville$community.$Yet,$given$Somerville’s$history$of$ relatively$low$levels$of$economic$growth$and$real$estate$investment,$the$SRA$has$historically$ been$a$relatively$dormant$entity$until$the$early$2000’s,$when$the$city$government$began$ implementing$major$economic$development$projects.$Since$then,$the$City$of$Somerville$has$ taken$on$a$larger$number$of$economic$development$projects$of$increasing$size$and$scope.$ This$has$dramatically$increased$the$need$for$an$urban$renewal$governance$structure$that$is$ competent,$nimble,$and$most$importantly$trusted$by$other$public$servants$and$the$ Somerville$community.$The$SRA,$in$its$current$form,$does$not$yet$fully$serve$that$need.$This$ report$analyzes$if$and$how$it$can$do$so.$ $ 7$.$Economic$transformation$ 6.$Implement$plan$and$undertake$development$ 5.$Selection$of$redeveloper$ 4.$State$reviews$and$approves$plan$ 3.$SRA,$Planning$Board,$City$council$and$Mayor$approve$plan$ 2.$Develop$urban$renewal$plan$with$citizen$engagement$ 1.$Identify$areas$of$disinvestment$ Citizen' Participation' SomerVision' Figure'1:'The'Urban'Renewal'Process'in'Somerville'

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 13$ $ Framework$for$Assessment:$The$Strategic$Triangle$$ Having$described$the$existing$membership$structure,$processes,$and$governance$of$the$SRA,$ we$now$offer$a$critical$assessment$of$the$SRA$with$an$eye$towards$how$gaps$in$value_adding$ policies,$operational$capacity,$and$community$support$must$be$filled$if$the$SRA$is$to$better$ fulfill$its$mission$of$economic$redevelopment.$$Figure$2$offers$a$graphic$of$the$“Strategic$ Triangle”$framework.$$ $ $ $ $ $ $ $ $ $ $ $ $ $ $ $ $ $ $ $ $ $ Developed$over$many$years$by$many$experts$at$Harvard$University’s$John$F.$Kennedy$School$ of$Government,$the$“Strategic$Triangle”$is$a$framework$for$analyzing$public$sector$agencies,$ boards,$programs,$and$initiatives.$Mark$Moore$presented$a$version$of$the$framework$in$his$ 1996$book,$Creating'Public'Value.xi$For$the$purposes$of$our$assessment$of$the$Somerville$ Redevelopment$Authority,$we$will$rely$on$a$version$of$the$framework$outlined$by$Professor$ Herman$Leonard$in$2002$in$his$A'Short'Note'on'Public'Sector'StrategycBuilding.xii$ $ The$Strategic$Triangle$refers$to$three$questions$central$to$any$public$sector$situation.$ $ 1) Capacity:$Does$the$organization$have$the$capacity'to$carry$out$this$program,$initiative,$ or$action?$In'assessing'capacity,'we'consider'the'following'components'of'the'SRA:' “people,'money,'skills,'authority,'space,'knowledge,'managerial'infrastructure,'and'any' other'physical'or'intellectual'resources'necessary.”xiii$ $ 2) Support:$Does$the$organization$have$the$support$of$the$people$or$organizations$whose$ support$(or$opposition)$to$this$program,$initiative,$or$action$is$relevant$to$our$carrying$it$ forward?$In'assessing'support,'we'consider'the'potential'or'known'views'of'stakeholders' both'internal'and'external'to'the'SRA.'$ ' Value$ Support$ Capacity$ Figure'2:'The'Strategic'Triangle' “The'public' manager'must' work'to'align' value,' capacity,'and' support'to' achieve'his'or' her'public' policy'goals.”

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 14$ $ 3) Value:$Would$the$operation$of$this$program/initiative/action$create$(net)$public$value?$ In'assessing'value,'we'consider'the'value'the'public'would'derive'from'the'program,' initiative,'or'action'that'the'SRA'has'or'has'not'put'forward.'$ $ By$answering$these$three$questions,$we$can$identify$where$a$program,$initiative,$or$action$ currently$or$potentially$being$pursued$by$the$SRA,$lacks$one,$two,$or$three$of$these$strategic$ components$for$creating$public$value.$$ $ By$way$of$example,$a$policy$might$have$considerable$public$value$and$the$government$ pursuing$that$policy$might$have$the$operational$and$financial$capacity$to$implement$it$with$ fidelity.$However,$it$may$lack$political$support$among$authorizing$bodies$or$among$the$ general$public.$Alternatively,$a$value_creating$program$may$have$the$necessary$support$from$ stakeholders,$but$the$government$may$not$have$the$financial$resources$or$operational$ capacity$to$carry$out$the$program.$$ $ In$these$instances,$the$public$manager$must$work$to$align$value,$capacity,$and$support$to$ achieve$his$or$her$public$policy$goals.$That$is,$he$or$she$must$ensure$the$value_creating$ programs$they$intend$to$pursue$have$the$requisite$support$and$capacity$for$sustainable$ implementation.$$ $ $ Assessing$the$SRA:$Creating$Public$Value$ The$values$to$which$the$SRA$ascribes$are—or$rather$should$be—articulated$in$Somerville’s$ guiding$master$planning$document,$SomerVision$(for'more'information'please'see'Appendix' D:'SomerVision,'In'Brief).$The$existence$of$SomerVision'means$that$unearthing$the$values$of$ the$SRA$and$Somerville$is$less$important$than$assessing$the$policies$and$tools$currently$at$its$ disposal$to$create$public$value.$Similarly,$assessing$the$counterfactual—what$Somerville$ would$look$like$without$an$SRA—helps$elucidate$the$net$value$it$creates$for$the$public.$ $ Takings$and$Land$Assembly$$ By$far,$the$SRA’s$strongest$tool$in$achieving$the$goals$of$SomerVision$is$eminent$domain.$The$ tool—or$rather,$the$threat$of$this$tool—has$helped$pave$the$way$for$redevelopment$in$ Somerville.$Eminent$domain$usually$occurs$within$the$broader$power$of$a$redevelopment$ authority$to$develop$an$urban$renewal$plan,$which$if$approved$by$city$and$state$officials,$ enables$a$city$to$engage$in$a$host$of$urban$renewal$activities,$including$eminent$domain$and$ land$assembly.$Moreover,$it$is$a$unique$tool$afforded$to$this$relatively$independent$body$that,$ when$used$prudently,$will$continue$to$facilitate$the$accelerating$pace$of$redevelopment$in$ Somerville$in$the$years$to$come.$$ $ Without$the$SRA$and$its$powers$of$eminent$domain,$it$would$be$far$more$difficult$for$the$ City,$and$more$importantly,$for$private$developers$to$acquire$the$land$necessary$for$ redevelopment$to$occur.$$In$Union$Square,$for$example,$the$SRA$acquired$land$and$cleared$ title$for$the$MBTA$to$construct$a$new$transit$stop$on$the$Green$Line.$Similarly,$these$powers$ will$be$critical$to$acquire$the$large$number$of$parcels$set$to$be$redeveloped$in$the$Union$ Square$revitalization$plan.$$Without$the$power$to$assemble$land$through$eminent$domain,$it$ Value$

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 15$ $ would$likewise$significantly$slow$down$and$even$halt$a$number$of$areas$of$economic$progress$ in$Somerville$that$achieve$the$stated$goals$outlined$in$SomerVision.$$ $ While$many$remain$skeptical$about$or$outright$opposed$to$the$SRA’s$and$City’s$use$of$ eminent$domain,$the$SRA$has$thus$far$acted$cautiously$and$incrementally$in$exercising$its$ right$to$acquire$land$for$public$purposes.$It$will$more$than$likely$have$to$exercise$this$right$in$ the$coming$years,$especially$in$Union$Square,$if$it$is$to$meet$the$Mayor’s$and$SomerVision’s' economic$development$goals.$Still,$identifying'or'maintaining'policies,'programs,'or'processes' to'continue'to'safeguard'against'eminent'domain'abuse'will'be'a'critical'component'of'the' SRA’s'work'going'forward.$ $ Exemption$from$state$procurement$laws$ Redevelopment$authorities$are$particularly$effective$at$large$scale$redevelopment$projects$ because$they$are$exempt$from$Massachusetts$General$Laws$Chapter$30$Uniform$Procurement$ Act.xiv$Generally,$this$act$requires$a$lengthy$RFP$process.$This$exemption$helps$a$ redevelopment$authority$assemble$land$quickly.$Furthermore,$the$RFP$process$often$ mandates$the$contract$go$to$the$lowest_bidder.$While$this$is$likely$sound$public$policy$in$ some$arenas$of$government$procurement,$the$ability$of$the$SRA$to$select$developers$that$ meet$a$range$of$extra_financial$needs—affordable$housing,$commitment$to$community,$ etc.—is$a$unique$feature$of$redevelopment$authorities$that$make$them$particularly$effective$ at$community$redevelopment.$$ $ While$enhancing$their$ability$to$create$public$value,$this$exemption$may$also$create$an$ environment$for$abuse$whereby$developers$are$rewarded$with$contracts$due$to$political$ favors.$This$is$a$significant$concern$that$would$compromise$the$SRA’s$ability$to$create$public$ value.$It$should$be$noted$that$to$date,$this$has$never$been$an$issue$for$the$SRA.$Identifying'or' maintaining'policies,'programs,'or'processes'to'continue'to'prevent'cronyism'and'unethical' behavior'is'necessary'to'maintain'the'SRA’s'ability'to'create'public'value.' $ Independence$from$legislative$and$executive$authority$ Born$out$of$the$early$20th$century$progressive$movement,$quasi_public$bodies,$such$as$the$ SRA,$were$created$to$insulate$economic$development$from$political$favoritism$and$the$ changing$nature$of$elected$bodies$and$offices.xv$While$redevelopment$authorities$could$abuse$ procurement$powers,$those$same$concerns$would$exist$in$their$absence.$$For$example,$ legislators$or$city$executives$could$reward$political$contributors$with$lucrative$contracts,$ jobs,$etc.$In$addition$to$independence,$isolating$redevelopment$authorities$from$political$ favoritism$enables$them$to$better$create$long_term$value$by$thinking$into$the$future$about$ city$planning$in$a$way$that$is$separated$from$election$cycles.$$ $ This$independence$from$the$Board$of$Aldermen$and$the$Mayor$enables$the$SRA$to$create$ value$while$maintaining$appropriate$checks$and$balances$from$both$parties.$The$Mayor$ appoints$and/or$elects$not$to$reappoint$members$of$the$SRA,$approves$or$rejects$urban$ renewal$plans,$and$contributes$to$its$decisions$through$the$power$of$the$pulpit$and$the$City’s$ economic$development$and$planning$offices.$The$Board$of$Aldermen$have$the$power$of$the$ purse,$can$approve$or$reject$an$SRA$nomination,$and$can$vote$up$or$down$an$urban$renewal$ plan.$$ “The'SRA’s' development' decisions'can' have'a' substantial' impact'on'the' local'economy' and'the' makeup'of'the' Somerville' community.”'

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 16$ $ $ The$SRA’s$independence$and$balance$of$power$with$the$City’s$elected$officials$is$ consequently$a$significant$value_adding$asset.$Any'recommendations'contained'in'this'report' must'continue'to'evaluate'how'they'might'alter'that'balance'of'power'and'provide'according' assessments.$$ $ Flexibility$in$programmatic$and$policy$tools$ The$first$three$subsections$described,$by$and$large,$value_creating$aspects$of$the$SRA.$The$ remaining$feature$of$the$SRA,$and$one$upon$which$the$SRA$does$not$capitalize,$is$the$ significant$flexibility$in$programmatic$and$policy$tools$that$redevelopment$authorities$have$ at$their$disposal.$Carol$Wolfe,$of$the$Massachusetts$Department$of$Housing$and$Community$ Development$and$one$of$the$state’s$leading$redevelopment$authority$experts,$notes$that,$ “redevelopment$authorities$have$a$broad$range$of$powers$outside$of$urban$renewal.”xvi$It$is$ this$broad$range$of$powers$that$allows$redevelopment$authorities$to$create$a$set$of$programs$ and$policies$that$meet$the$unique$jurisdictional$needs$of$their$city$and$community.$ $ However,$the$SRA$does$very$little$outside$of$urban$renewal$planning$and$developing.$As$ articulated$in$the$next$section,$our$research$into$other$municipalities’$redevelopment$ authorities$illuminates$nearly$a$dozen$broad$policies$or$programs$carried$out$by$these$other$ redevelopment$authorities$that$create$value$for$their$citizenry.$Many$of$these$same$programs$ implemented$by$redevelopment$authorities$elsewhere$are$implemented$by$the$Office$of$ Strategic$Planning$and$Community$Development$within$Somerville.$Still,$determining'which,' if'any,'of'these'policies'the'SRA'should'pursue'in'an'effort'to'better'create'public'value'will'be' critical'to'its'future'success.$' $ $ Assessing$the$SRA:$Financial,$human,$and$operational$capacity$ Having$identified$the$opportunity$for$the$SRA$to$expand$its$scope$in$terms$of$programs$or$ policies,$the$next$logical$step$in$this$framework$is$assessing$the$capacity$of$the$SRA$to$do$so.$ Here$we$do$so$along$three$domains:$Financial$resources,$staffing$support,$and$human$capital.$ $ Financial$Resources$$ Due$to$an$existing$Memorandum$of$Understanding$(“MOU”)$between$the$SRA,$the$Mayor,$ and$the$Board$of$Aldermen,$the$SRA$does$not$hold$any$of$its$own$funds$and$has$no$budget$of$ its$own.xvii$Instead,$the$Board$of$Aldermen$approves$funding$for$specific$projects$in$a$ piecemeal$fashion.$Even$if$the$SRA$were$to$make$a$profit$through$the$leasing$or$selling$of$any$ property,$the$MOU$dictates$that$those$funds$would$be$returned$to$the$Board$of$Aldermen$ and$the$City’s$general$coffers.$Further,$the$SRA$is$even$prohibited$from$receiving$any$sort$of$ federal$grants$or$financial$gifts$that$would$capitalize$the$agency.$Lastly,$the$SRA$is$prevented$ from$issuing$debt$through$bonds,$among$other$financing$tools.$ $ Capacity$ Finding$#1:$The$SRA$has$an$opportunity$to$enhance$its$ability$to$create$value$ through$new$programs$or$policies$in$the$context$of$accelerating$economic$ development,$while$continuing$to$safeguard$against$the$abuses$of$land^taking.$$ $

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 17$ $ If$the$SRA$is$going$to$expand$or$change$any$of$its$current$policies$or$programs—and$if$its$to$ meet$the$increasing$demands$placed$on$it$in$the$coming$years—what'financial'resources'will' be'necessary'and'what'capitalization'mechanism'is'most'appropriate?'' $ Staffing$Support$ The$SRA$employs$no$staff$of$its$own$and$is$prohibited$from$doing$so$according$to$the$ aforementioned$MOU.$Instead,$OSPCD$staff$support$the$SRA$with$technical$and$ administrative$support,$in$addition$to$fulfilling$the$duties$within$the$OSPCD.$$Eileen$ McGettigan$serves$as$Special$Counsel$to$the$SRA.$She$attends$all$meetings,$provides$legal$ counsel,$drafts$contracts$and$agreements,$and$serves$as$the$key$liaison$between$the$SRA$and$ city$staff.$The$SRA$also$regularly$interfaces$with$George$Proakis$(Director$of$Planning),$Ed$ O’Donnell$(Director$of$Economic$Development),$and$Mike$Glavin$(Executive$Director$of$the$ OSPCD).$$$ $ With$significant$depth$and$breadth$of$experience$in$planning$and$development,$the$OSPCD$ staff$has$brought$significant$expertise$and$understanding$to$its$support$of$the$SRA.$However,$ with$the$size$of$the$Union$Square$project$and$the$projected$development$growth$in$the$city,$ the$burdens$being$placed$on$OSPCD$staff$will$likely$increase.$If$the$SRA$is$going$to$expand$or$ change$any$of$its$current$policies$or$programs—and$if$its$to$meet$the$increasing$demands$ placed$on$it$in$the$coming$years—what'additional'staffing'might'be'necessary'and'what' specific'positions'might'be'most'appropriate?$ $ Human$Resources$ Besides$the$existence$of$staff,$the$mix$of$human$resources$skills$and$competencies$of$the$SRA$ itself$is$an$important$component$of$the$SRA’s$capacity$to$fulfill$its$mission.$$ $ Each$member$of$the$SRA$is$deeply$connected$to$the$Somerville$community.$As$long_serving$ members$on$the$SRA$and$as$long$time_residents$of$Somerville,$Busnach,$Bonney,$and$Gage$ have$significant$institutional$knowledge$about$the$SRA$and$the$Somerville$city$government.$ These$members$further$offer$a$variety$of$professional$experiences$to$the$SRA.$Busnach$brings$ years$of$real$estate$experience$and$Bonney$is$a$medical$researcher$at$Tufts$University.$Recent$ requests$for$applicants$for$the$two$vacancies$on$the$board$have$emphasized$professional$ experience$in:$community$planning;$public$transportation;$transit_oriented$development;$ real$estate$development;$housing$or$financial$services;$and$design$and$architecture.xviii$ Ensuring$that$the$SRA$is$well_poised$to$assume$its$role$as$a$trusted,$competent,$and$nimble$ board$requires$careful$consideration$of$the$members$of$the$SRA$themselves.$Therefore,$what' is'the'appropriate'mix'of'backgrounds'and'experiences'we'want'on'the'SRA,'and'how'do'we' encourage'that'mix'in'the'appointment'process?$ $ Concluding$thoughts$on$capacity$issues$ The$aforementioned$MOU$also$restricts$various$operations$that$the$SRA$can$conduct,$ specifically$as$they$relate$to$real$estate$purchases,$leasing,$and$other$transactions.$This$is$tied$ to$the$minimal$financial$capacity$of$the$SRA.$One$anecdote$in$particular$exemplifies$how$the$ lack$of$operational$capacity,$with$respect$to$real$estate$transactions,$constrains$the$amount$of$ value$the$SRA$can$create.$ $

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 18$ $ The$existing$Union$Square$Fire$Department$must$be$relocated$according$to$the$transit_ oriented$redevelopment$plan$put$forth$by$the$city$and$approved$by$the$state.$At$the$same$ time,$the$property$at$515$Somerville$Ave$is$ideal$for$the$station’s$relocation,$not$only$to$make$ room$for$redevelopment,$but$to$house$the$station$in$a$more$modern$building$that$meets$ their$needs.$In$other$words,$this$real$estate$transaction$would$create$considerable$value$for$ Somerville.xix$$ $ However,$neither$the$SRA$nor$the$City$can$purchase$this$lot$without$approval$from$the$Board$ of$Aldermen,$a$process$that$takes$a$few$months.$If$the$City$or$the$SRA$had$long_term$funds$ available$to$do$individual$land$purchases,$it$would$be$able$to$purchase$the$land$accordingly.$ However,$since$it$does$not,$the$price$of$the$property$has$since$increased,$diminishing$the$ economic$value$of$the$project.$$ $ $ !Assessing$the$SRA:$Support$inside$and$outside$of$City$Hall$ To$assess$the$extent$of$support$for$the$SRA$as$it$carries$out$the$goals$and$vision$laid$out$in$ SomerVision,$we$examined$the$authorizing$environment$for$the$SRA$from$external$ stakeholders$(i.e.$the$public)$and$internal$stakeholders$(i.e.$Somerville$city$officials).$ $ External$Stakeholders$ Somerville$is$a$highly$knowledgeable,$vocal,$and$engaged$community.$Somervillians$feel$ deeply$connected$to$their$community$and$to$the$issues$they$perceive$to$be$of$the$highest$ priority.$Therefore,$engaging$the$Somerville$community$has$been$a$top$priority$for$the$ Curtatone$administration$on$a$whole$host$of$issues,$and$specifically$on$urban$renewal.$$ $ Beyond$complying$with$open$meeting$laws$and$holding$public$meetings,$the$City$has$worked$ significantly$to$engage$the$community$with$respect$to$economic$development.$For$the$Union$ Square$project,$Mayor$Curtatone$appointed$a$Citizen$Advisory$Committee$(“CAC”),$a$group$ of$citizens$invited$to$participate$and$advise$in$the$selection$of$the$master$developer$for$the$ project.xx$This$committee$was$deeply$involved$in$the$master$developer$selection$process,$ meeting$regularly$with$city$staff$and$traveling$the$country$to$meet$with$the$four$finalists.xxi$$ $ However,$the$success$of$engaging$the$CAC$was$and$continues$to$be$mixed.$Some$CAC$ members$were$disappointed$that$their$number$one$choice$of$master$developer$was$not$ selected$by$the$SRA,$even$though$their$role$was$advisory.xxii$Others$were$frustrated$by$the$ SRA’s$approach$to$the$final$debate$on$the$night$of$the$master$developer$selection.xxiii$In$fact,$ this$event$perfectly$elucidates$the$credibility$and$support$gaps$facing$the$SRA.$At$this$ meeting,$some$members$of$the$SRA$wanted$to$go$into$“executive$session”$to$skirt$public$ discussion.$While$this$was$not$permitted$under$the$state’s$open$meeting$laws,$and$thus$did$ not$happen,$just$the$possibility$of$the$SRA$obfuscating$the$process$in$this$way$infuriated$ many$members$of$the$CAC$and$the$broader$community.xxiv$$ $ Finding$#2:$The$SRA$lacks$even$modest$amounts$of$human$and$financial$ capital$to$meet$the$changing$economic$development$needs$of$Somerville.$ Support$

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 19$ $ This'anecdote'reveals'that'the'city'must'engage'citizens'in'a'deeper'and'different'manner'if' they'are'to'gain'the'support'among'community'members.' $ Beyond$the$CAC$debacle$of$last$summer,$citizens$continue$to$feel$less$than$fully$engaged$in$ the$development$process.$Looking$at$recent$news$articles,$for$example,$reveals$a$slew$of$ negative$coverage$with$respect$to$the$Union$Square$development$project.$Continuous$op_eds$ and$articles$have$criticized$the$city$and$US2$for$prioritizing$residential$over$commercial$ development$in$a$critically$important$location$without$outlining$plans$for$the$rest$of$the$ Union$Square$projectxxv$and$for$not$including$community$signatories$to$a$“community$ benefits$agreement.”xxvi$Lastly,$other$groups$like$Union$United,$who$are$wholly$opposed$to$ the$redevelopment$of$Union$Square,$continue$to$work$against$the$city,$rather$than$as$a$ constructive$partner$providing$thoughtful$and$active$support$of$the$project.xxvii$$ $ The$SRA$cannot$limit$its$engagement$to$the$appointed$CAC$for$each$urban$renewal$plan.$In$ fact,$the$SRA’s$community$involvement$must$cover$both$a$depth$and$breadth$of$the$citizenry$ to$fully$gain$support$among$a$sizeable$cohort$of$community$members.$Proactively$engaging$ those$groups$is$an$opportunity$for$the$SRA.$$What'is'the'appropriate'public'engagement'and' communication'strategy'to'promote'understanding'of'and'engagement'with'the'SRA?'$ $ Internal$Stakeholders$$ The$SRA$sits$at$a$critical$juncture$between$the$executive$and$legislative$branches$of$the$ municipal$government$of$the$City$of$Somerville$(See'Appendix'E:'Somerville'Organizational' Chart).$The$Mayor$sets$the$redevelopment$priorities$and$appoints$the$members.$His$strategic$ planning$and$community$development$employees$staff$the$redevelopment$authority.$ Meanwhile,$the$Board$of$Aldermen$approves$the$Mayoral$appointments$and$maintains$ complete$power$of$the$purse$with$respect$to$the$SRA’s$financial$resources.$$ $ Naturally,$both$the$Mayor$and$the$Board$of$Aldermen$are$interested$in$maintaining$their$ current$check$on$the$SRA.$Some$members$of$the$Board$of$Aldermen$are$interested$in$ curtailing$the$power$of$the$SRA,$preferring$urban$renewal$powers$sit$with$the$legislative$ branch$rather$than$with$a$quasi_public$board.xxviii$While$the$SRA,$the$Mayor,$and$the$Board$ of$Aldermen$have$worked$together$in$the$past,$tension$remains$between$the$three$political$ units.$How'will'reforms'to'the'SRA'change'the'power'dynamic'of'checks'and'balances'in' Somerville?'$$ $ $ Finding$#3:$The$SRA$currently$lacks$sustainable$and$meaningful$platforms$for$ community$engagement$and$therefore$lacks$credibility$among$constituents.$$ $ Finding$#4:$The$SRA$exists$within$a$delicate$balance$of$power$between$the$ Board$of$Aldermen$and$the$Mayor.$$ $

URBAN$RENEWAL$IN$THE$CITY$OF$SOMERVILLE$ $ Over$the$course$of$the$past$decade$and$a$half,$the$City$of$Somerville$has$passed$two$major$urban$renewal$ plans$for$Assembly$Square$and$Union$Square.$While$the$Union$Square$project$is$still$in$its$infancy$(a$ Master$Developer$was$selected$in$July$2014),$the$Assembly$Square$project$is$virtually$complete.$There$are$ important$lessons$learned$from$the$Assembly$Square$project$that$can$inform$Somerville’s$approach$to$ future$development.$$ $ Assembly$Square$$ Today,$following$years$of$ongoing$development$and$engagement$with$citizens,$Assembly$Square$has$ transformed$into$a$thriving$neighborhood$of$residential$and$commercial$properties.$Assembly$Square$ Mall$has$become$Assembly$Square$Marketplace,$a$series$of$big_box$stores$such$as$Staples$and$Sports$ Authority.$Assembly$Row$opened$in$2014$and$is$a$45_acre$mixed_use$development$that$includes$ premium$outlets,$restaurants,$residential$space,$office$space,$movie$theater,$and$hotel.$Most$recently,$the$ MBTA$opened$its$first$new$rapid$transit$station$in$27$years,$the$Assembly$stop$on$the$Orange$Line.xxix$ $ Some$of$the$elements$of$Assembly’s$success$are:$$ • An$urban$renewal$plan$informed$by$both$citizen$and$developer$stakeholders;$$ • A$trusted$real$estate$investment$partner$in$Federal$Realty$Investment$Trust;$$ • Creative$property$management;$$ • Somerville$and$the$SRA$facilitated$a$property$swap$between$Federal$Realty$Investment$$$ $$ • Public$transit$access$due$to$opening$of$Assembly$Square$Orange$Line$stop$$ $ Union$Square$ The$Union$Square$Revitalization$Plan$was$approved$in$2012$after$years$of$community$planning$sessions,$ studies$to$examine$transportation$and$zoning$options,$and$consultations$with$experts$in$economic$ development$and$urban$planning.$The$Revitalization$Plan$called$for$transit_orientated$development$of$ the$area$connected$to$and$surrounding$the$expected$Union$Square$Green$Line$stop.$For$the$Union$ Square$development,$the$City$of$Somerville$and$the$SRA$decided$to$select$a$master$developer$partner$for$ seven$land$parcels$connected$to$and$surrounding$the$proposed$Green$Line$stop.$The$master$developer$ was$selected$in$July$through$a$public$process$that$deeply$involved$the$Union$Square$Citizen$Advisory$ Committee$(CAC).$This$will$be$the$largest$project$in$Somerville’s$history.xxx$$ $ While$there$is$still$much$to$come$from$the$Union$Square$project,$many$of$the$elements$of$success$from$ the$Assembly$Square$project$have$already$been$carried$out$as$part$of$the$Union$Square$process$ including:$$ $ • Focusing$on$transit_oriented$development$$ • Creating$an$urban$renewal$plan$through$significant$stakeholder$engagement$ • Deepening$engagement$with$the$public$(through$the$appointment$of$the$CAC)$as$the$project$$$$$$ moves$forward$ $ $ $ $

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 21$ $ $ $ $ $ $ $ ' ' ' ' ''Union' Square'in'the'1950s' $ $ 5. POLICY$OPTIONS:$ASSESSING$THE$SCOPE$OF$ALTERNATIVES$TO$ THE$SRA’S$CURRENT$MODEL$AND$FUNCTIONS$$ $ In$the$previous$section,$we$described$the$current$competencies$and$deficiencies$of$the$SRA$ using$the$strategic$triangle$framework$of$value,$capacity,$and$support.$In$doing$so,$we$ described$the$limited$major$value_creating$policies$it$engages$in,$its$limited$current$human$ and$capital$resources,$and$its$mediocre$external$support$among$the$public.$ $ In$this$section,$we$examine$redevelopment$governance$structures$in$municipalities$across$ Massachusetts$to$outline$the$range$of$policies,$programs,$and$governance$structures$the$SRA$ might$adopt$going$forward.$$ $ Specifically,$we$apply$a$similar$framework$of$the$strategic$triangle$in$order$to$capture$the$full$ scope$of$value_adding$policies$and$programs$the$SRA$could$operationalize.$Accordingly,$we$ then$assess$the$resources$that$might$be$needed$to$carry$out$those$policies$and$programs$and$ align$capacity$with$desired$programmatic$value.$Similarly,$we$discuss$the$type$of$political$ legitimacy$and$authority$required$by$each$program$or$policy,$and$how$other$municipalities$ enhance$that$legitimacy$among$constituents.$$ $ First,$however,$we$describe$the$three$broad$governance$models$that$development$authorities$ can$take$on.$ $ $ Organizational$models$for$redevelopment$authorities$ The$Massachusetts$Department$of$Housing$and$Community$Development$suggests$three$ organizational$models$for$municipal$development:$(1)$Quasi_public$agencies;$(2)$public$ agencies;$and$(3)$public_private$agencies.xxxi$$ $ Quasi^public$agencies$ Municipalities$publicly$charter$a$redevelopment$authority$through$the$state,$which$is$then$ classified$as$an$independent$board$often$comprised$of$public$and$private$sector$ representatives$from$the$community.$The$SRA$clearly$falls$into$the$category$of$a$quasi_public$ agency,$or$as$jurists$would$call$an$“independent$body,$corporate$and$politic.”xxxii$The$majority$

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 22$ $ of$other$redevelopment$authorities$we$spoke$with$subscribe$to$this$model$including$ Somerville’s$closest$neighbor,$Cambridge,$MA.$ $ Independent$agencies$such$as$a$redevelopment$authority$exist$outside$the$full$control$of$the$ local$chief$executive$and$legislature.$In$fact,$these$agencies$were$born$out$of$the$early$20th$ century$progressive$movement$to$insulate$redevelopment$decisions$from$politics,$provide$ sustainability$across$mayoral$administrations,$and$limit$the$ability$of$local$governing$bodies$ to$corrupt$or$inappropriately$influence$the$development$process.xxxiii$ $ It’s$worth$noting$the$degree$of$redevelopment$authority$independence$from$city$executives$ and$legislatures$varies,$both$in$Massachusetts$and$elsewhere.$The$Boston$Redevelopment$ Authority$is$the$most$independent$redevelopment$authority$in$Massachusetts$commanded$ by$strong$mayoral$control.$It$houses$the$city’s$public$offices$of$development,$planning,$ zoning,$and$all$aspects$of$economic$development.$While$this$coordination$may$breed$better$ planning$via$in_house$coordination,$it$also$allows$for$strong$executive$control$and$the$ potential$for$favoritism$with$minimal$public$engagement,$of$which$the$Boston$ Redevelopment$Authority$has$in$the$past$been$accused.xxxiv$ $ Public$Agencies$ Redevelopment$may$not$occur$through$an$independent,$quasi_public$board,$but$instead$may$ be$subsumed$within$the$city’s$legislative$or$executive$body.$Though,$this$is$rare.$ $ In$Lowell,$the$City$Council$formally$serves$as$the$municipality’s$redevelopment$authority.$ Initially,$the$Lowell$Redevelopment$Authority$was$chartered$as$an$independent$board.$ However,$in$1976,$the$City$effectively$lobbied$for$special$state$legislation$that$abolished$the$ Lowell$Redevelopment$Authority$and$placed$the$legal$authority$and$all$assets$of$the$ redevelopment$authority$with$the$City$Council.xxxv$$ $ The$decision$to$shift$the$legal$and$policy$responsibilities$of$the$redevelopment$authority$to$ the$City$Council$was$driven$by$a$growing$connection$between$the$redevelopment$authority$ and$other$city$programs.$There$was$a$general$sentiment$that$the$Lowell$Redevelopment$ Authority$had$outlived$its$purpose$as$an$independent$quasi_public$entity$and$should$be$ subsumed$entirely$within$the$City$Council.xxxvi$Today,$city$staff$provide$the$policy$and$ administrative$resources$and$support$the$City$Council$acting$as$the$redevelopment$authority.$ Specifically,$the$Urban$Renewal$Project$Manager$is$a$fully$dedicated$staff$member$that$ oversees$the$city’s$three$urban$renewal$plans.$ $ While$we$did$not$interview$a$municipality$that$adopted$this$model,$it$is$similarly$possible$for$ redevelopment$powers$to$be$subsumed$within$the$executive$branch.$Under$Massachusetts$ General$Laws$Chapter$43C,$the$municipality’s$legislative$body$can$vote$to$create$a$ consolidated$department$of$community$development$which$can$include$the$redevelopment$ authority,$planning$board,$or$any$other$municipal$office$or$agency$focused$on$economic$ development.xxxvii$Under$this$model,$the$chief$executive$of$the$municipality$would$appoint$a$ Director$of$Community$Development$and$four$members$of$a$Community$Development$ Board.$The$fifth$board$member$would$be$appointed$by$the$state$through$the$Department$of$ Housing$and$Community$Development.$The$Community$Development$Board$assumes$the$ powers$of$the$redevelopment$authority$(and$any$other$boards$that$the$municipality$is$

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 23$ $ consolidating).$The$community$of$Chelsea$with$its$Economic$Development$Board$is$an$ example$of$this$model.$$ $ Public^Private$Partnerships$ Public_private$partnerships$can$be$additions$to$the$redevelopment$governance$structure$of$a$ municipality.$These$organizations$are$typically$led$by$a$board$of$local$community$leaders$ who$encourage$private$investment.$$In$our$research,$we$found$that$redevelopment$ authorities$might$work$closely$with$a$non_profit$development$organization.$While$the$city$ does$not$grant$any$formal$legal$powers$to$these$organizations,$they$work$closely$with$them$ to$encourage$private$development.$For$example,$the$Springfield$Redevelopment$Authority$ serves$on$the$board$of$and$works$closely$with$a$non_profit$development$entity,$Develop$ Springfield.$The$board$is$composed$of$other$local$civic$leaders.$Develop$Springfield$sought$ private$investment$and$carried$out$programs$dedicated$to$the$redevelopment$desperately$ needed$by$the$city$after$a$devastating$tornado$in$2011.$Since$then,$the$organization$has$ branched$out$to$include$redevelopment$activities$such$as$encouraging$market$rate$housing$ and$business$assistance.xxxviii$$ $ Assessing$the$three$models$ As$mentioned$earlier,$the$vast$majority$of$redevelopment$agencies$subscribe$to$the$first$ model$as$authorized$in$121B.$While$nearly$homogenous$in$governance,$however,$no$two$ redevelopment$authorities$are$alike$at$a$more$granular$level.$Consequently,$looking$at$broad$ models$only$offers$so$much$in$terms$of$where$the$SRA$could$improve.$As$such,$we$found$ utility$in$assessing$the$entire$menu$of$value_adding$policies,$financial$and$staffing$capacities,$ and$types$of$political$support$a$redevelopment$may$exercise$or$encounter.$ $ $ Creating$Value:$Policies$beyond$Urban$Renewal$and$Eminent$Domain$ In$Massachusetts$and$across$the$country,$redevelopment$agencies$have$a$range$of$tools$at$ their$disposal$for$meeting$the$redevelopment$challenges$of$their$municipalities.$As$discussed$ earlier,$nearly$all$redevelopment$agencies$have$the$power—and$have$exercised$that$power— to$designate$urban$renewal$areas$for$redevelopment$and$to$develop$and$implement$urban$ renewal$plans.$Additionally,$all$redevelopment$agencies$are$granted$land_taking$powers$ under$Massachusetts$General$Law$Chapter$121B.xxxix.$These$are$the$most$powerful$tools$a$ redevelopment$authority$has$at$their$disposal.$$ $ In$addition$to$these$general$functions,$however,$redevelopment$authorities$exhibit$a$range$of$ tools,$assets,$capacities,$and$approaches$to$stimulate$development$in$disinvested$and$ blighted$areas.$Outlining$and$understanding$the$scope$of$these$domains$is$necessary$to$ understand$which$policy$alternatives$would$add$value$to$the$SRA.$(For$a$summary$of$ qualitative$interviews$with$municipal$redevelopment$authorities,$please$see$Appendix'E:' Interviews'with'Redevelopment'Authorities).$ $ As$a$supplement$to$urban$renewal$plans$and$eminent$domain$powers,$the$following$section$ offers$a$list$of$programs,$powers,$and$policies$that$other$redevelopment$authorities$and$ planning$experts$identified$as$adding$value$towards$fulfilling$their$agencies’$missions.$These$ powers$are$either$explicitly$afforded$to$redevelopment$authorities$in$Massachusetts$General$ Law$Chapter$121B,$or$they$are$implicitly$afforded$to$them$by$the$absence$of$language$ Value$

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 24$ $ restricting$them$to$certain$activities.$The$SRA$itself$currently$engages$in$a$few,$but$nowhere$ near$all$of$these$programs$or$policies$(OSCPD$does$in$engage$in$some$of$these$activities).$ $ $ $$Engaging$in$demonstration$projects$ Redevelopment$authorities$clearly$have$the$authority$to$designate$areas$as$“urban$renewal$ zones”$through$creation$and$approval$of$an$urban$redevelopment$plan.$However,$ Massachusetts$General$Laws$Chapter$121B$Section$46f$allows$redevelopment$authorities$to$ create$a$plan$for$a$specific$parcel$to$enable$development$outside$of$a$designated$urban$ renewal$area.xl$ $ Make$relocation$payments$to$persons$and$businesses$displaced$ In$addition$to$making$land$acquisition$payments,$redevelopment$authorities$must$work$with$ displaced$residents$and$businesses$to$help$them$financially$identify$a$new$location$for$ habitation$or$commercial$activity.$The$SRA$has$included$relocation$plans$for$both$the$ Assembly$Square$and$Union$Square$urban$renewal$plans.$$ $ Demolish$or$rehabilitate$substandard$structures$or$improve$property$ According$to$the$former$Executive$Director$of$the$Brockton$Redevelopment$Authority,$the$ BRA$has$$“stepped$up$as$a$stabilizing$force$and$as$a$receiver$to$bring$property$up$to$state$ sanitary$code$to$make$it$fit$for$human$habitation.”xli$This$program$has$been$particularly$ important$to$bring$abandoned,$foreclosed$homes$up$to$code$for$sale$on$the$private$market.$It$ should$be$noted$that$this$program$is$conducted$through$Brockton’s$HOME$Investment$ Partnerships$Program$(HOME),$which$uses$federal$funds$to$carry$out$a$wide$range$of$ housing$related$policies.$In$Brockton,$the$redevelopment$authority$implements$this$program;$ whereas,$in$Somerville,$housing$programs$and$grants$are$implemented$by$the$OSPCD.$$ $ Engage$in$or$contract$for$construction,$remodeling,$or$alteration$ The$Salem$Redevelopment$Authority,$for$example,$recently$acquired$an$old$convent$ downtown$that$it$converted$into$live_work$spaces$according$to$the$mayor’s$vision$of$ “capitalizing$on$the$creative$economy.”xlii$$ $ Participate$in$real$estate$development$and$commercial$revitalization$ This$can$include$the$buying,$selling,$leasing,$and$management$of$land$and$property.$The$ redevelopment$authorities$we$spoke$to$ran$the$gamut$in$terms$of$real$estate$development$ activism.$The$City$of$Cambridge,$for$example,$exercises$the$entire$range$of$real$estate$ transactions$possible.xliii$The$City$of$Malden$owns$parking$garages,$but$contracts$ management$out$to$a$consultant.xliv$The$Springfield$Redevelopment$Authority$is$undertaking$ an$extensive$project$to$renovate$its$Union$Station$(serving$Amtrak).xlv$While$the$Worcester$ Redevelopment$Authority$owns$its$Union$Station$(serving$MBTA),$its$strategy$is$to$focus$ solely$on$acquiring$and$disposing$of$property,$without$engaging$in$long_term$ownership.xlvi$$ $ $ $ Finding$#5:$Redevelopment$agencies$exhibit$a$range$of$tools,$assets,$ capacities,$and$approaches$beyond$land^taking$that$help$them$stimulate$ development$in$blighted$and$underinvested$areas.$

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 25$ $ Stimulating$local$development$through$grants$or$loans$ Redevelopment$authorities$have$the$power$to$grant$funds$to$local$community_based$ organizations$as$part$of$their$urban$renewal$mandate.$$ $ The$Cambridge$Redevelopment$Authority$utilizes$its$own$financial$assets$to$“to$redistribute$ the$value$of$redevelopment$to$the$rest$of$the$community,”$according$to$its$Executive$ Director,$Tom$Evans.xlvii$In$Cambridge,$these$grants$go$towards$a$variety$of$uses,$including$ one$time$capital$expenses$for$community$improvements,$as$well$as$grants$to$small$business$ owners.$$ $ Redevelopment$authorities$can$also$redirect$money$through$loans$instead$of$grants.$For$ example,$the$Brockton$Redevelopment$Authority$offers$business$loans$for$façade$ improvements.xlviii$The$City$of$Malden$issues$loans$to$citizens$to$get$their$property$up$to$ code.xlix$The$Cambridge$Redevelopment$Authority,$alternatively,$opts$for$grants$rather$than$ loans$due$to$the$increased$transaction$costs$of$seeking$the$principal$and$possible$returns$ back.l$$ $ While$other$municipalities$may$issue$small$grants$and/or$loans$through$their$redevelopment$ authorities,$the$City$of$Somerville$carries$out$its$grants$and$loans$programming$(including$ any$available$Community$Development$Block$Grants)$through$the$OSPCD.$$ $ Establish$rehabilitation$and$design$standards$ The$Salem$Redevelopment$Authority,$for$example,$works$very$closely$with$the$Salem$Design$ Review$board$to$approve$the$design$review$board’s$recommendations,$namely$for$its$historic$ districts.li$ $ Work$on$regional$redevelopment$through$municipal$coordination$ Municipalities$can$also$coordinate$to$establish$regional$development$organizations.$Malden,$ Medford,$and$Everett$(with$Malden$taking$a$leadership$role)$established$the$Mystic$Valley$ Development$Commission$to$coordinate$the$Rivers$Edge$development$which$sits$at$a$critical$ juncture$between$these$three$communities.lii$$ $ $ $ !Building$Capacity:$Financial$and$Human$Capital$ Of$course,$the$more$powers$that$redevelopment$authorities$exercise,$the$more$financial$and$ human$resources$they$require.$Generally,$the$financial$and$staffing$resources$of$most$ redevelopment$authorities$are$smaller$today$than$they$were$in$the$1960s$and$1970s$when$ federal$and$state$funding$for$urban$renewal$was$plentiful$and$redevelopment$authorities$ were$quite$active$in$acquiring$property$in$urban$slums.$Today’s$redevelopment$authority$ relies$on$fewer$available$resources,$particularly$state$and$federal$funds,$and$is$focused$on$ more$targeted$urban$renewal$plans.$Here$we$assess$the$range$of$financial$and$staffing$ capacities$of$other$municipalities$in$comparison$with$Somerville’s.$$ $ Financial$capacity$ The$SRA$stands$out$compared$to$a$number$of$other$municipal$redevelopment$authorities$in$ that$it$has$no$financial$assets$and$no$budget.$Comparatively,$most$other$municipalities$in$ Capacity$

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 26$ $ Massachusetts$have$some$sort$of$financial$assets$or$revenue$stream$to$fund$their$programs.$$ Sources$of$capitalization$include:$ $ • State$and$Federal$grants,$such$as$the$community$development$block$grants$ • Retention$of$net$proceeds$from$the$sale$of$property$following$its$acquisition$ • Selling,$exchanging,$transferring,$or$leasing$acquired$property$$ • Fees$associated$with$property$management$(i.e.$fees$from$parking$garages)$ • Gifts$and$loans$ • Borrowing$money$through$bonds,$notes,$or$other$securities$of$indebtedness$ • Investing$in$securities$and$receiving$a$return$on$that$investment$ $ Using$these$funds,$redevelopment$authorities$range$from$uncapitalized$(e.g.$Somerville)$to$ financially$self_sustaining$(e.g.$Cambridge$Redevelopment$Authority).$$ $ Human$Resource$Capacity$$ Like$the$financial$capacity$that$supports$their$programs,$redevelopment$authorities$require$a$ minimum$set$of$human$resources$to$fulfill$their$mandates.$As$described$earlier,$Somerville$ has$support$from$a$number$of$staff$within$the$city’s$economic$planning$department.$Other$ municipalities,$such$as$Everett,$with$its$small$but$growing$planning$department,$have$even$ fewer$employees,$full$or$part$time,$staffing$their$redevelopment$authorities.liii$Still,$Brockton$ Redevelopment$Authority$Executive$Director$Robert$Jenkins$notes,$“at$minimum,$most$ Authorities$consist$of$an$executive$director$and$an$administrative$assistant.”liv$Other$ redevelopment$authorities,$such$as$Brockton$and$Malden,$have$sizeable$staffs.$$ $ Even$if$staffed$by$city$employees,$every$redevelopment$authority$we$spoke$with,$with$the$ exception$of$Lowell,$has$an$Executive$Director$of$its$redevelopment$authority.$In$Salem,$ Worcester,$and$Everett,$the$Executive$Director$is$housed$within$the$city$staffing$structure$ and$serves$a$dual_role,$typically$also$acting$as$head$of$economic$development$or$planning$or$ community$development.lv$In$Springfield,$the$Executive$Director$is$housed$within$the$city$ staffing$structure,$but$his$time$is$entirely$dedicated$to$the$redevelopment$authority.lvi$In$ these$four$cases,$therefore,$the$Executive$Director$is$hired$by$and$reports$to$the$someone$ within$the$Chief$Executive’s$inner$circle,$if$not$the$Chief$Executive$him$or$herself,$rather$than$ the$redevelopment$authority.$However,$in$Brockton,$Malden,$and$Cambridge,$the$Executive$ Director$is$hired$by$and$reports$to$the$redevelopment$authority.lvii$These$redevelopment$ authorities$also$have$independent$staff$housed$within$the$redevelopment$authority$not$the$ city$staffing$structure,$hired$by$and$reporting$to$the$Executive$Director.$Generally,$there$is$a$ high$correlation$between$number$of$staff$dedicated$to$a$redevelopment$authority$and$the$ robustness$of$its$financial$resources.$ $ $ Finding$#6:$While$the$SRA$has$neither$a$budget$nor$a$fully^dedicated$staff,$other$ municipalities$use$a$variety$of$financing$tools$and$staffing$structures$to$ensure$ their$redevelopment$authorities$have$the$capacity$they$need$to$create$value.$

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 27$ $ $Examining$Support:$The$Authorizing$Environment$ Public$policies$and$the$bodies$that$produce$them$require$an$authorizing$environment$from$a$ host$of$stakeholders.$Generally,$quasi_public$boards$need$support$from$both$from$the$ government$(internal$stakeholders)$and$public$(external$stakeholders)$they$serve.$For$ redevelopment$authorities,$a$trusting$and$open$relationship$with$the$public$is$critical$to$ ensure$that$development$respects$the$needs$and$desires$of$the$community.$$ $ Internal$Stakeholders$ Support$within$city$government$is$critical$for$redevelopment$authorities$to$effectively$carry$ out$their$mission.$ $ Looking$first$towards$the$executive$branch,$every$single$municipality$we$spoke$with$ discussed$substantial$and$regular$interaction$and$coordination$with$other$branches$and$ agencies$of$the$governments$they$served.$$In$Worcester$for$example,$there$is$a$weekly$ meeting$between$the$Chief$Development$Officer$(also$serves$as$the$Executive$Director$of$the$ Worcester$Redevelopment$Authority),$City$Manager,$the$President$of$the$Chamber$of$ Commerce,$the$President$of$Massachusetts$Biomedical$Initiatives$(MBI),$and$the$President$of$ Worcester$Business$Development$Corporation.lviii$This$meeting$serves$to$ensure$that$these$ bodies$are$all$aligned$in$their$contribution$to$development$in$the$City$of$Worcester.$For$ those$redevelopment$authorities$with$more$financing$and$staff$(e.g.$Cambridge,$Malden,$and$ Brockton),$regularly$interfacing$with$other$city$branches$remained$an$important$component$ to$successful$urban$renewal$and$redevelopment$projects.$$ $ Beyond$coordination$with$planning$staff,$an$effective$redevelopment$authority$also$requires$ coordination,$legitimacy,$and$often$funding$from$the$city’s$legislative$body.$Those$ redevelopment$authorities$with$independent$revenue$streams,$Brockton,$Malden,$and$ Cambridge,$rarely$seek$funding$from$their$city$councils.$Those$without$independent$revenue$ streams$are$more$likely$to$seek$out$funding$from$the$city’s$legislative$body.$In$Worcester,$for$ example,$the$city$council$annually$appropriates$operating$capital$funds,$primarily$for$the$ management$of$its$Union$Station$as$the$lease$revenue$does$not$fully$cover$operating$costs.lix$ Of$course,$in$Lowell,$where$the$city$council$is$the$redevelopment$authority,$the$city$council$ is$naturally$deeply$intertwined$in$funding$whether$from$the$city$or$outside$sources.$$ $ Yet,$even$those$cities$without$independent$revenue$streams$regularly$chase$federal,$state,$ and$private$grant$funding$for$their$work.$In$none$of$the$municipalities$that$we$spoke$with$ did$interviewees$mention$that$applying$for$grant$funds$requires$legislative$approval.$ Nevertheless,$regardless$of$whether$these$cities$have$independent$revenue$streams,$city$ funding,$or$outside$funding,$they$all$recognize$the$need$to$have$a$trusted$relationship$with$ their$elected$officials$of$their$municipalities.$Tom$Evans$in$Cambridge$said$it$best,$“For$us$to$ implement,$we$need$complete$buy_in$from$the$city$manager$and$city$council.”lx$ $ $ External$Stakeholders$ Just$as$importantly,$effective$redevelopment$authorities$proactively$work$with$community$ groups$and$activist$citizens$to$give$them$a$seat$at$the$table$while$also$mitigating$potential$ opposition$to$redevelopment.$ $ “Most' redevelopment' authorities'we' spoke'engage' with'citizens' perfunctorily' and'defensively,' rather'than' meaningfully' and' proactively.” Support$

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 28$ $ Each$redevelopment$authority$interviewed$as$part$of$this$research$emphasized$that$engaging$ the$public$was$critical$to$their$success.$Yet,$most$redevelopment$authorities$we$spoke$with$ seem$to$do$so$perfunctorily$and$defensively$rather$than$meaningfully$and$proactively.$They$ comply$with$open$meeting$laws,$hold$required$public$meetings,$and$at$best$appoint$citizen$ advisory$committees$for$developing$and$implementing$each$urban$renewal$plan.$The$open$ meeting$laws,$public$meetings,$and$citizen$advisory$committees$are$incredibly$important$for$ engaging$the$public.$Still,$as$we’ve$seen$in$Somerville,$they$by$no$means$will$result$in$a$ favorable$authorizing$environment.$Looking$beyond$meeting$these$legal$requirements,$most$ redevelopment$authorities$we$spoke$with$had$little$to$offer$in$terms$of$broader$public$ engagement$and$community$outreach.$$ $ Still,$some$municipalities$offered$promising$strategies.$When$the$City$of$Cambridge$was$ conducting$a$strategic$assessment$of$their$redevelopment$authority,$they$told$every$ neighborhood$association$and$public$group$in$the$city$that$if$they$wanted$a$presentation$ about$the$direction$of$the$CRA,$the$Executive$Director$would$come$to$their$next$meeting.lxi$ In$Lowell,$the$city$helped$to$create$neighborhood$or$business$groups$in$urban$renewal$areas$ that$had$traditionally$not$had$representation.$The$goal$is$for$these$groups$to$be$sustainable$ on$their$own$without$significant$city$support$and$to$provide$a$place$for$the$City$citizens$to$ engage$with$community$members$to$achieve$buy_in$and$support.lxii$Malden$is$in$the$process$ of$completing$a$total$re_design$of$their$online$communications$to$make$their$documents$and$ processes$more$accessible$on$the$internet.lxiii$Of$the$municipalities$we$interviewed,$ Cambridge$leads$the$way$with$an$online$community$engagement$tool,$coUrbanize,$as$the$ online$component$of$its$community$engagement$strategy$during$its$2014$master$planning$ process.lxiv$As$part$of$its$public$engagement$plan$for$the$urban$renewal$extension$process$for$ 16$of$18$urban$renewal$plans$in$Boston,$the$City$of$Boston$recently$launched$a$new$website,$ bostonurbanrenewal.com,$that$gives$citizens$access$to$historical$information,$maps,$ significant$development$projects,$and$provides$an$online$comment$option.lxv$$ $ $ In$the$next$section,$we$apply$the$lessons$learned$from$our$discussions$with$other$ redevelopment$authorities$to$the$context$of$the$SRA$and$Somerville$to$develop$a$set$of$ recommendations$and$next$steps.$$ $ $ $ $ Finding$#7:$While$most$municipalities$simply$meet$legal$requirements$with$ respect$to$citizen$engagement,$some$offer$innovative$public$engagement$tools$ that$could$potentially$enhance$the$SRA’s$ability$to$build$support$for$its$projects.$

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 29$ $ $ $ $ $ $ 6. ANALYSIS$AND$RECOMMENDATIONS$$ $ In$accordance$with$the$findings$and$subsequent$analysis$found$in$this$report,$the$following$ section$outlines$a$series$of$recommendations$that$will$advance$the$goals$and$values$set$out$in$ SomerVision,$including$job$creation,$growing$the$city’s$tax$base,$maintaining$the$city’s$ unique$character,$and$revitalizing$many$of$the$city’s$blighted$neighborhoods.$Specifically,$ these$recommendations$build$off$of$the$value_support_capacity$framework$of$the$strategic$ triangle,$recognizing$the$unique$value$the$SRA$offers$to$the$City’s$economic$development$ infrastructure,$arming$it$with$the$necessary$capacity$to$enhance$that$value,$and$building$ support$among$community$members$and$city$officials.$$ $ We$begin$with$a$recommendation$to$maintain$the$SRA$as$an$independent$body.$We$then$ issue$a$broad$call$for$mission$articulation$and$strategic$alignment$for$the$SRA.$What$follows$ is$then$a$series$of$programmatic$and$policy$recommendations$the$SRA,$Board$of$Aldermen,$ and$the$Mayor$should$pursue$that$will$enhance$the$Mayor$Curtatone’s$promise$to$make$ Somerville$“a$great$place$to$work,$live,$play,$and$raise$a$family.”$$ $ In$the$subsequent$section,$we$offer$a$series$of$action$steps$to$operationalize$these$ recommendations$that$will$help$the$SRA$build$credibility$with$the$community,$ professionalize$the$SRA$staff,$streamline$its$processes,$and$enhance$the$City’s$ability$to$drive$ forward$community_based$redevelopment.$$ $ $ Recommendation$#1:$The$Mayor$and$the$Board$of$Aldermen$should$ maintain$the$organizational$structure$of$the$SRA.$ $ As$detailed$in$the$last$section,$redevelopment$can$take$three$broad$organizational$forms:$(1)$a$ quasi_public$independent$body;$(2)$a$public$entity$administered$through$the$executive$or$ legislative$branches;$or$(3)$a$non_governmental$form$or$public_private$partnership.$ $ We$strongly$believe$the$SRA$in$its$current$form$as$an$independent$agency$best$serves$the$ economic$development$goals$and$the$people$of$Somerville.$$ ' Affording$complete$redevelopment$powers$to$the$legislative$or$executive$branch$is$ politically$and$operationally$infeasible.$ Jettisoning$the$current$independent$nature$of$SRA$would$be$enormously$difficult$to$ accomplish,$be$politically$infeasible$given$the$battle$for$control$between$the$legislative$and$ executive$branches,$and$compromise$its$inoculation$from$politics$and$the$shifting$electoral$ landscape.$ $

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 30$ $ First,$arming$the$Board$of$Aldermen$or$the$Mayor$with$complete$or$shared$redevelopment$ powers$would$require$the$City$to$work$with$the$state$legislature$to$pass$a$state$law$that$ would$dissolve$the$SRA$and$transfer$the$tools$of$urban$renewal$to$elected$officials.$Doing$so$ would$require$significant$time$and$political$capital$and$would$significantly$damage$the$city’s$ relationship$with$the$SRA$if$its$efforts$fail.$ $ Further,$even$if$the$city$succeeded$in$this$endeavor,$putting$all$powers$of$redevelopment$into$ the$legislative$or$executive$body$significantly$compromises$the$balance$of$power$and$series$of$ checks$on$balances$that$each$body$has$on$the$other.$Similarly,$it’s$unlikely$that$either$body$ would$allow$the$other$to$assume$near_full$control$over$redevelopment.$It$is$also$imprudent$ to$concentrate$the$powers$of$urban$renewal$in$a$single$body,$as$opposed$to$the$checks$and$ balances$that$exist$between$city$actors$now.$ $ Lastly,$this$model$would$mean$that$issues$of$redevelopment$would$be$subject$to$the$whims$ of$an$ever_changing$electorate.$In$the$past$two$years$alone$more$than$half$of$the$Board$of$ Aldermen$have$changed$seats.lxvi$Eliminating$the$SRA$would$eliminate$an$agency$that$largely$ inoculates$important$planning$decisions$from$the$political$process.$For'these'reasons,'we'do' not'recommend'eliminating'the'SRA'and'transferring'redevelopment'into'a'fully'publiccsector' enterprise.' ' ' Maintain$the$SRA$structure,$but$adopt$critical$changes$for$21st$century$development.$ Redevelopment$authorities$are$afforded$a$unique$combination$of$powers$of$eminent$domain,$ land$assembly,$and$procurement$that$allow$the$city$to$meet$the$increasing$demand$for$ development$and$economic$expansion.$The$powers$afforded$to$a$redevelopment$authority$ are$important$tools$to$have$in$the$development$toolbox,$tools$that$will$be$all$the$more$critical$ given$the$expansive$development$facing$Somerville$in$the$coming$decades.$Losing$these$ powers$at$this$critical$juncture$would$be$detrimental$to$the$City’s$development$goals.$For'this' reason,'we'strongly'recommend'maintaining'the'SRA'as'it'currently'stands.'' ' Still,$the$challenges$before$the$SRA$demand$innovative$programs,$policies,$and$ partnerships—supported$by$the$necessary$capacities$and$support$of$the$community—that$ align$its$governance$with$the$aspirational$goals$of$SomerVision.$As$indicated$below,$this$will$ require$more$flexibility$in$terms$of$staffing$and$financing,$the$continued$support$of$the$ Mayor$and$Board$of$Aldermen,$and$the$continued$coordination$with$the$city’s$planning$ department.$$ $ $ Recommendation$#2:$Key$city$and$citizen$stakeholders$should$develop$ and$implement$a$strategic$plan$that$clearly$defines$the$SRA’s$mission,$ goals,$and$direction.!$! $ To$achieve$the$goals$of$SomerVision,'government$departments$and$officials$must$have$a$clear$ and$cogent$theory$of$change$in$line$with$an$equally$clear$and$cogent$mission$within$the$ context$of$this$master_planning$document.$To$date,$the'SRA’s$mission$remains$unclear.$ Furthermore,$it’s$unlikely$that$officials$from$the$Board$of$Aldermen,$the$Mayor’s$office,$the$ community,$and$the$SRA$itself$have$sat$down$in$the$same$room,$let$alone$had$a$conversation$ “We'strongly' believe'the' SRA'in'its' current'form' as'an' independent' agency'best' serves'the' economic' development' goals'and'the' people'of' Somerville.”

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 31$ $ about$SRA$strategy$and$mission.$While$the$SRA$continues$to$coordinate$with$OSPCD,$its$ piecemeal$relationships$with$key$stakeholders$mean$it$is$largely$a$rudderless$organization.$ $ Formally$outlining$the$mission$of$and$vision$for$the$SRA$and$how$this$board$fits$in$with$the$ overall$economic$development$strategy$will$go$a$long$way$towards$formalizing$it’s$role$within$ Somerville.$Doing$so$will$allow$the$city$to$engage$in$forward$and$backwards_mapping,$ ultimately$deciding$which$policy$recommendations$within$this$report$and$elsewhere$it$finds$ desirable.$$ $ Before$considering$capacity_building$programs$and$before$instituting$some$of$the$policy$ reforms$we$recommend$below,$we'strongly'recommend'holding'a'dayclong'strategy'workshop' to'discuss'the'findings'of'this'report,'clearly'identify'the'mission'of'the'SRA,'and'develop'a' strategic'plan'and'timeline'based'of'the'recommendations'of'this'report'and'the' recommendations'of'relevant'stakeholders.'$ $ $ Recommendation$#3:$The$Mayor$and$the$Board$of$Aldermen$should$ build$the$SRA’s$capacity$through$the$appointment$of$at$least$one$fully$ dedicated$staff$member.$ $ To$meet$the$redevelopment$goals$outlined$in$SomerVision,$we$propose$adding$a$fully$ dedicated$staff$member$to$the$SRA$who$would$serve$as$the$agency’s$Executive$Director.$As$it$ stands,$the$OSPCD$is$providing$much$needed$technical,$legal,$and$administrative$support$to$ the$SRA.$It$should$continue$to$do$so,$as$it$has$the$unique$human$capital$in$economic$ planning$to$support$the$SRA.$$ $ However,$we$recommend$at$least$one$full_time$staff$member$to$the$SRA$to$compliment,$not$ replace,$the$existing$support$the$SRA$receives$from$the$City.$As$the$demands$placed$on$ OSPCD$increase$in$the$coming$years—which$will$manifest$as$development$continues$to$ accelerate—city$staff$will$be$stretched$thin$in$terms$of$supporting$a$fully$functional$and$ modern$SRA.$A$designated$Executive$Director$can$coordinate$projects,$seek$out$funding,$and$ deepen$relationships$with$the$Board$of$Aldermen.$Moreover,$we$foresee$the$person$serving$as$ Executive$Director$to$be$the$public$“face”$of$the$SRA$in$the$form$of$the$organization’s$citizen$ liaison,$a$role$not$fully$being$served$by$anyone$within$the$city$staff.$$ $ Specifically,$we$anticipate$the$Executive$Director$completing$the$following$broad$tasks:$$ $ • Provide$administrative$support$to$the$SRA.$ $ • Act$as$the$liaison$between$the$public$and$the$SRA$including$hosting$public$meetings,$ meeting$with$neighborhood$groups,$businesses,$and$residents.$ $ • Serve$as$the$liaison$between$the$Board$of$Aldermen,$the$Mayor,$and$city$staff$and$the$ redevelopment$authority.$ $ • Identify$sources$of$funding$for$projects.$Work$closely$with$the$Board$of$Aldermen$to$ secure$funding$quickly$if$needed.$$

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 32$ $ $ • Work$closely$with$city$staff$on$urban$renewal$plans,$relocation$plans,$developer$ contracts,$etc.$$ $ • Work$with$state$partners$to$facilitate$planning$and$implementation$of$projects$ $ An$interim$possibility$as$the$City$ramps$up$its$work$is$to$have$the$Executive$Director$serve$in$ a$dual_role$as$a$city$staff$member$and$Executive$Director$of$the$SRA.$Over$time,$as$the$ number$of$urban$renewal$projects$increases,$the$Executive$Director$would$transition$to$a$ fully_allocated$staff$member$for$the$SRA.$$ $ Regardless,$the$mere$appointment$of$a$fully$dedicated$staff$member$will$both$increase$the$ operational$capacity$and$credibility$of$the$SRA$among$citizen$stakeholders.$This$is$ particularly$relevant$considering$that$existing$SRA$members—while$dedicated$to$the$ authority$itself—are$relatively$disengaged$from$citizens$and$development$of$plans.$As$such,$ we'strongly'recommend'appointing'an'Executive'Director'of'the'SRA.'' ' $ Recommendation$#4:$The$Mayor$and$the$Board$of$Aldermen$should$ build$the$SRA’s$capacity$through$modest$capitalization.$ $ The$lack$of$any$discretionary$budget$significantly$restricts$the$unique$role$that$the$ redevelopment$authority$can$play$in$accelerating$economic$development$in$a$city.$To$have$a$ modern$redevelopment$authority$that$is$highly$responsive$to$its$citizens$and$one$that$ advances$smart,$efficient,$and$progressive$public$policies,$it$needs$at$least$some$financial$ flexibility$to$do$so,$without$having$to$continuously$go$before$the$Board$of$Aldermen$for$even$ the$smallest$request$for$funds.$$ $ Currently,$the$Board$of$Aldermen$exerts$wholesale$control$of$the$city’s$redevelopment$ finances.$While$loosening$that$control$will$likely$encounter$political$pushback$from$ aldermen,$the$same$aldermen$that$would$oppose$capitalization$are$those$likely$to$oppose$the$ existence$of$the$SRA$in$the$first$place.$Meanwhile,$there$are$a$range$of$capitalization$options$ (as$articulated$in$the$previous$section)$that$would$provide$the$SRA$with$modest$funding$to$ expand$the$scope$of$its$work$without$requiring$significant$relinquishment$of$financial$ control.$$$ $ An$alternative$to$providing$the$SRA$with$funding$of$its$own$is$to$work$together$to$create$a$ financing$request$process$that$will$allow$the$SRA$to$nimbly$take$advantage$of$real$estate$ opportunities.$This$process$would$be$used$only$for$high$priority$urgent$projects$and$would$ signal$to$the$Board$of$Aldermen$the$need$for$a$quick$review.$This$process$would$maintain$the$ Aldermen’s$hold$on$the$purse$strings$while$speeding$up$the$financing$approval$process.$$ $ Even$more$specifically,$we$recommend$allowing$the$SRA$to$solicit$and$receive$federal$grants$ and$to$retain$net$proceeds$from$the$sale$or$leasing$of$property.$We'strongly'recommend' discussing'financing'opportunities'and'process'to'ensure'that'the'SRA'has'the'resources'it' needs'to'respond'to'the'rapidly'evolving'real'estate'market'in'Somerville.'$ $

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 33$ $ $ Recommendation$#5:$With$adequate$staffing$and$financing,$the$SRA$ should$pursue$more$nimble$and$smart$real$estate$transactions$that$ create$value$for$Somerville.$ $ The$previous$two$recommendations$will$help$build$the$SRA’s$capacity.$That$capacity$should$ be$actively$used$to$enhance$community$engagement$(see$the$following$recommendation)$ and$to$streamline$the$development$process$through$real$estate$transactions.$As$it$stands,$the$ City$is$losing$substantial$value$in$purchasing$land$and$property$it$deems$desirable$due$to$a$ bureaucratic$appropriations$process.$Instead$of$having$to$go$to$the$Board$of$Aldermen,$and$ subsequently$waiting$months$for$approval,$the$SRA$would$be$able$to$use$its$capital$to$ purchase$property$that$it$and$the$OSPCD$deems$valuable.$This$will$avoid$instances$where$ such$properties’$prices$rise$or$properties$that$are$purchased$in$the$interim$while$waiting$for$ funds.$For'this'reason'we'recommend'the'SRA'actively'and'routinely'work'with'OSPCD'to'use' its'funds'for'real'estate'transactions'that'further'the'economic'development'goals'of'the'city.' $ $ Recommendation$#6:$The$newly$appointed$SRA$Executive$Director$ should$work$to$proactively$engage$the$community.$ $ One$of$the$core$problems$facing$the$SRA$is$that$it$does$not$engage$in$proactive$activities$with$ the$community.$Similarly,$existing$forums$for$community$members$may$appear$perfunctory$ to$activists,$rather$than$substantial$engagement$with$citizens.$This$is$largely$tied$to$the$fact$ that$no$one$person—such$as$an$executive$director—is$charged$with$the$responsibility$to$ incorporate$community$concerns$into$the$SRA’s$operations$and$programs.$$ $ The$newly$appointed$Executive$Director$should$actively$attend$citizen$meetings,$meet$with$ Somerville$residents$and$neighborhood$associations,$and$engage$actively$with$the$business$ community.$Moreover,$he$or$she$should$do$so$by$establishing$meaningful$relationships$with$ these$stakeholders$so$they$feel$like$they$have$someone$in$government$representing$their$ concerns,$not$working$against$them$or$simply$placating$them.$ $ Similarly,$the$Executive$Director$should$employ$a$suite$of$innovative$public$engagement$ tools$online.$In$addition$to$social$media,$a$number$of$other$products$exist$that$allow$citizens$ to$actively$engage$their$redevelopment$authorities,$such$as$coUrbanize.$$ $ As$such,$we'recommend'the'newly'appointed'SRA'Executive'Director'actively'meet'with'the' community'and'create'additional'online'and'public'forums'for'engagement.' $ $ Recommendation$#7:$Develop$guidelines$or$a$set$of$principles$for$future$ SRA$appointments.$ $ Until$recently,$most$SRA$members$have$served$multiple$terms$on$the$board$and$were$ typically$reappointed$by$the$Mayor$when$their$terms$were$up.$With$two$open$seats$on$the$ board,$there$is$an$opportunity$for$the$Mayor$to$develop$a$set$of$guidelines$for$future$SRA$

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 34$ $ appointments.$These$guidelines$should$include$the$relevant$professional$experience$and$ skills$desired$for$the$SRA.$We'recommend'developing'a'set'of'principles'for'future' appointments'to'ensure'that'the'SRA'continues'to'have'high'quality'members'adept'at' assessing'Somerville’s'urban'renewal'needs.'' !! $ $ $

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 35$ $ $ $ $ $ $ $ 7. ACTION$STEPS$–$OPERATIONALIZING$RECOMMENDATIONS$ $ This$section$outlines$key$action$steps$to$achieve$the$recommendations$outlined$in$the$ previous$section.$Rather$than$recommendation_by_recommendation,$we$present$these$action$ steps$chronologically$since$many$of$the$recommendations$are$interwoven$and$depend$on$the$ operationalization$of$some$before$others.$$ $ $Preliminary$action$steps$for$building$the$SRA’s$capacity$ The$existing$MOU$between$the$Board$of$Aldermen,$Mayor,$and$the$SRA$significantly$ weakens$the$ability$of$the$SRA$to$serve$the$community.$The$following$are$preliminary$action$ steps$towards$capitalizing$the$staffing$the$SRA:$ $ • The$Special$Council$to$the$SRA$and$OSPCD$should$examine$the$existing$MOU,$which$ prohibits$the$SRA$from$having$a$staff$or$budget$of$its$own$ $ • The$Special$Council$to$the$SRA$and$OSPCD$should$identify$what$legal$options$exist$ to$amend$or$nullify$that$MOU,$thereby$allowing$the$appointment$of$an$Executive$ Director$and$capitalizing$the$SRA$ $ • The$Special$Council$to$the$SRA$and$OSPCD$should$select$the$most$political$and$ legally$appropriate$means$of$amending$or$nullifying$the$MOU.$ $ • OSPCD$should$identify$any$remaining$legislative$or$executive$requirements$for$ building$the$SRA’s$staffing$capacity$(i.e.$does$nullifying$or$amending$the$MOU$allow$ the$SRA$to$have$a$staff$and$a$budget,$or$must$additional$legislation$be$passed?)$ $ • OSPCD$meets$with$Board$of$Aldermen$to$inform$them$of$the$Mayor’s$intentions$ $ Action$steps$for$hiring$an$Executive$Director$ With$an$altered$legal$and$political$environment$from$the$MOU$alterations,$the$City$and$SRA$ should$seek$to$hire$an$Executive$Director$to$begin$modernizing$the$SRA$in$accordance$with$ the$recommendations$of$this$report.$ $ • The$Mayor$should$identify$where$the$Executive$Director$would$officially$be$“housed,”$ which$would$almost$certainly$be$within$OSPCD$ $ • OSPCD$staff$members$and$the$SRA$should$develop$key$professional$and$personal$ requirements$it$seeks$in$an$executive$director$ $ • The$City$should$advertise$and$actively$promote$the$job$application$for$this$position$

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 36$ $ $ • When$interviewing$and$ultimately$hiring$for$this$position,$the$City$should$do$so$with$ any$eye$towards$the$applicant’s$ability$to$manage$stakeholders$inside$and$outside$of$ City$Hall,$in$addition$to$his$or$her$technical$planning$and$development$expertise.$ $ $ Action$steps$for$identifying$the$SRA’s$mission$and$creating$its$strategic$plan$ $ • Newly_hired$Executive$Director$(“ED”)$identifies$key$stakeholders$in$SRA,$OSPCD,$ Mayor’s$office,$the$Board$of$Aldermen,$and$in$the$community$to$invite$to$strategy$ session$ $ • ED$identifies$at$least$half$a$work$day—but$ideally$an$entire$work$day—where$all$ parties$can$attend$a$strategy$workshop,$clearly$communicating$workshop’s$importance$ and$purpose$to$invited$parties$ $ • ED$crafts$an$agenda$for$the$workshop$including$questions$that$will$be$asked$of$the$ group$with$an$eye$toward$key$deliverables$ $ • Invitees$attend$the$workshop$and$conduct$follow$up$meetings$as$necessary.$ $ • ED$and$OSPCD$produce$a$tangible$deliverable$(e.g.$a$public$report)$building$off$of$this$ document$that$articulates$what$the$SRA$is,$who$it$serves,$what$its$mission$is,$and$what$ policies$and$strategies$it$with$continue$or$adopt$over$the$next$2_3$years$to$meet$its$ mission.$ $ • Allow$that$strategic$document$to$dictate$which$policies,$programs,$and$governance$ modifications$the$SRA$should$pursue$in$accordance$with$this$report$ $ $ Action$Steps$for$Capitalizing$the$SRA$$ $ • OSPCD$should$assess$gaps$in$current$funding$streams$within$the$OSPCD$to$determine$ if$the$SRA$can$play$a$role$in$filling$those$gaps.$Specifically,$assess$role$of$grants$and$ small$loans$within$the$OSCPD$to$determine$if$there$is$a$gap$the$SRA$could$fill$to$ engage$community$based$organizations$and$small$businesses.$ $ • OSPCD$should$assess$opportunities$for$using$new$sources$of$revenue$for$proactive$ land$purchasing.$ $ • Lastly,$there$should$be$a$meeting$of$the$Executive$Director,$the$Board$of$Aldermen,$ Mayor,$and$city$staff$to$identify$opportunities$to$work$together$to$develop$a$funding$ process$that$supports$nimble$property$acquisitions$in$the$context$of$Somerville’s$ rapidly$evolving$real$estate$market.$ $ $ $Action$Steps$for$Community$Engagement$$$

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 37$ $ $ • ED$should$immediately$meet$with$stakeholders$referenced$in$recommendations$ section$ $ • ED$should$create$strategic$communications$plan$to$articulate$what$the$SRA$is$ currently$doing$in$the$community.$$ $ • ED$should$create$and$manage$suite$of$social$media$platforms$to$engage$citizens$$ $ $ $

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 38$ $ $ $ $ $ $ $ $ 8. CONCLUSION$ $ The$economic$and$community$development$challenges$that$Somerville$faces—and$will$ continue$to$face—are$significant.$But$those$same$challenges$are$also$opportunities$to$ accelerate$Somerville’s$transformation$from$a$City$once$marred$by$urban$decay$to$one$with$a$ thriving$economy$fueled$by$its$unique$character$and$vibrant$community.$$ $ As$the$pace$of$development$increases,$both$the$role$the$SRA$will$play$and$the$impact$it$will$ have$on$the$face$of$Somerville$will$similarly$increase.$It$is$time$to$bring$the$SRA$into$the$21st$ century$by$making$it$a$modern$government$agency$with$a$clear$mission$operating$with$a$ thought_out$strategy$to$fulfill$that$mission$along$with$substantial$support$from$stakeholders$ inside$and$outside$of$City$Hall.$$ $ The$recommendations$in$this$report$are$a$first$step$in$that$process.$Admittedly,$they$are$not$ revolutionary$ideas.$From$increasing$staffing$to$engaging$community$members,$however,$ these$seemingly$small$recommendations$have$the$potential$to$revolutionize$the$way$the$SRA$ and$City$of$Somerville$approaches$redevelopment.$Inasmuch,$these$recommendations$serve$ as$a$launch$pad$for$further$discussion$as$to$what$the$SRA$is,$who$it$serves,$and$how$it$can$ best$serve$them.$$ $ On$behalf$of$the$citizens$of$Somerville,$we$hope$those$discussions$bear$fruit$in$the$form$of$a$ forward_thinking,$proactive,$and$revitalized$redevelopment$authority.$$ $$ $$ $ $ $ $

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 39$ $ APPENDIX$A:$QUALITATIVE$INTERVIEW$METHODOLOGY$AND$ CONSENT$PROCESS$ $ In$preparing$for$qualitative$interviews$with$government$officials,$civic$activists,$and$planning$ experts,$we$systemically$prepared$a$list$of$questions$specific$to$the$stakeholder’s$interest$in$ Somerville’s$economic$development.$Sometimes,$those$questions$were$offered$to$ interviewees$ahead$of$the$scheduled$interview.$Interviews$typically$lasted$45$to$60$minutes$ with$approximately$50$percent$of$interviews$taking$place$over$the$phone$and$50$percent$of$ interviews$taking$place$in_person.$Researchers$took$copious$notes$that$were$logged$into$a$ Google$document.$These$field$notes$comprise$the$bulk$source$of$this$report’s$findings.$ $ To$comply$with$Harvard’s$Institutional$Review$Board$requirements—the$university’s$human$ subject’s$approval$agency—we$supplied$each$interviewee$with$the$following$form$and$ followed$its$procedures$accordingly.$Notably,$we$respected$interviewees$requests$to$go$“off$ the$record.”$Any$of$those$findings$were$either$not$included$in$the$final$report$or$included$ without$attribution$or$even$the$risk$of$attribution.$ $ $ $ $ $ $ $ $ $ $ $ $ $ $ $ $ $ $ $ $ $ $ $ $ $ $ $ $ $ Evaluating$and$enhancing$the$Somerville$Redevelopment$ Authority$ Consent$form$for$citizen,$government,$and$academic$experts$ $ $ My$name$is$Crosby$Burns/Jennifer$North$from$Harvard$University,$and$we$are$asking$you$ to$take$part$in$our$research$study.$$ $ For$Somerville$interviews:$I$would$like$to$interview$you$to$learn$more$about$the$ Somerville$Redevelopment$Authority$and$the$City$of$Somerville’s$growth$plan$for$the$ next$20_30$years.$ $ For$interviews$outside$of$Somerville:$I$would$like$to$interview$you$to$learn$more$about$ your$redevelopment$authority$so$that$we$may$learn$more$about$best$practices$from$your$ municipality.$ $ The$interview$will$last$about$45_60$minutes.$You$can$skip$questions$that$you$do$not$want$ to$answer$or$stop$the$interview$at$any$time.$ $ We$will$not$share$your$personal$information$with$anyone$outside$the$research$team$if$ you$so$request.$If$you$do$not$make$this$request,$it$is$possible$that$we$may$cite$or$quote$ you$or$the$information$contained$in$this$interview$as$part$of$our$final$report$and$ findings.$ $ Being$in$this$study$is$voluntary.$Please$tell$me$if$you$do$not$want$to$participate.$ $ Questions?$Please$contact$us$by$email$or$by$phone.$' $

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 40$ $ APPENDIX$B:$QUALITATIVE$INTERVIEW$QUESTIONNAIRE$–$OTHER$ MUNICIPALITIES$ $ Custom'questions'were'created'for'specific'municipalities'$$ $ 1.$Please$explain$your$background$and$role$with$the$redevelopment$authority$(RA).$ $ 2.$We$know$that$redevelopment$authorities$look$a$little$different$in$each$municipality.$Can$ you$describe$the$structure$of$the$redevelopment$authority?$ $ 3.$Can$you$confirm$how$the$RA$members$are$appointed?$$ $ 4.$What$are$the$professional$backgrounds$of$the$current$RA$members?$$ $ 5.$We$know$that$redevelopment$authorities$focus$on$different$issues$depending$on$the$ municipality.$What$are$the$key$issues$of$focus$for$the$RA?$$ $ 6.$Can$you$explain$the$RA’s$involvement$in$property$ownership$and$management?$$ $ 7.$Can$you$describe$the$budget$for$the$RA?$Does$it$have$its$own$budgetary$authority?$Are$RA$ members$provided$any$compensation$for$their$service?$$$ $ 8.$Outside$of$standard$public$meeting$laws,$how$does$the$RA$engage$with$the$community?$$ $ 9.$What$do$you$see$as$the$greatest$strengths$or$areas$of$best$practice$of$the$RA?$$ $ 10.$If$you$could$create$your$ideal$RA,$what$would$do$you$see$as$opportunities$for$ improvement?$$$ $ $ $ $ $

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 41$ $ APPENDIX$C:$LIST$OF$INTERVIEWEES$ $ Qualitative$informational$interviews$provided$this$report’s$most$robust$and$critical$findings.$ The$following$comprises$the$comprehensive$set$of$individuals$that$were$interviewed$as$part$ of$this$research.$ $ Government$Officials$Within$the$City$of$Somerville$ • Joseph$Curtatone$|$Mayor,$City$of$Somerville$ • Mike$Glavin$|$Executive$Director,$Office$of$Strategic$Planning$&$Community$ Development$ • Ed$O’Donnell$|$Director$of$Economic$Development,$Office$of$Strategic$Planning$&$ Community$Development$ • Andy$Offit$|$Special$Advisor$to$the$Mayor$ • Eileen$McGettigan$|$Special$Counsel,$Office$of$Strategic$Planning$&$Community$ Development$ • George$Proakis$|$Director$of$Planning,$Office$of$Strategic$Planning$&$Community$ Development$ • Nancy$Busnach$|$Chair,$Somerville$Redevelopment$Authority$ • Mark$Niedergang$|$Ward$5$Aldermen,$City$of$Somerville$Board$of$Aldermen$ • Bill$White$|President,$City$of$Somerville$Board$of$Aldermen$$ $ Municipal$officials$outside$of$Somerville$$ • Tom$Evans$|$Executive$Director,$Cambridge$Redevelopment$Authority$ • Robert$Jenkins$|$Executive$Director,$Brockton$Redevelopment$Authority$$ • Andrew$Shapiro$|$Economic$Development$Planner,$Salem$Department$of$Planning$ and$Community$Development$ • Deborah$Burke$|$Executive$Director,$Malden$Redevelopment$Authority$$ • Craig$Thomas$|$Urban$Renewal$Project$Manager,$Lowell$Department$of$Planning$and$ Development$ • Michael$Traynor$|$Executive$Director,$Worcester$Redevelopment$Authority$and$Chief$ Development$Officer,$City$of$Worcester$$$ • Jamie$Errickson$|Executive$Director,$Everett$Redevelopment$Authority$and$Executive$ Director,$Department$of$Planning$&$Development,$City$of$Everett$ • Chris$Moskal$|$Executive$Director,$Springfield$Redevelopment$Authority$$ $ Civic$Activists$and$Planning$Experts$$ • Wig$Zamore$|$Chair,$Civic$Advisory$Committee$ • Carol$Wolfe$|$Community$Revitalization$Coordinator,$Massachusetts$Department$of$ Housing$and$Community$Development$$ • Edward$Lonergan$|$Attorney,$SRA$member$1973,$Boston$Redevelopment$Authority$ staff$member$1974_1979$ $ $ $

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 42$ $ APPENDIX$D:$SOMERVISION,$IN$BRIEFlxvii$ $ In$2012,$the$City$of$Somerville$released$SomerVision'a$comprehensive,$30_year$master$plan.$$ Created$over$three$years$via$an$extensive$public_vetting$process$led$by$a$sixty$person$steering$ committee$of$experts,$citizens,$and$public$servants,$SomerVision$set$goals$for$job$creation,$ publicly_accessible$open$space,$housing,$public$transit,$and$land_use$redevelopment.$The$ development$proposed$in$SomerVision'is$focused$around$the$six$new$transit$stops$of$the$ Massachusetts$Bay$Area$Transit$Authority’s$Green$Line$Extension.$The$goals,$or$SomerVision' Numbers,$include:$$ $ • 30,000$new$jobs$as$part$of$a$responsible$plan$to$create$opportunity$for$all$Somerville$ workers$and$entrepreneurs$ • 125$new$acres$of$publicly_accessible$open$space$as$part$of$a$realistic$plan$to$provide$ high_quality$and$well_programmed$community$spaces$ • 6,000$new$housing$units$_$1,200$permanently$affordable$as$part$of$a$sensitive$plan$to$ attract$and$retain$Somerville’s$best$asset:$its$people.$ • 50%$of$new$trips$via$transit,$bike,$or$walking$as$part$of$an$equitable$plan$for$access$ and$circulation$to$and$through$the$City.$ • 85%$of$new$development$in$transformative$areas$as$part$of$a$predictable$land$use$ plan$that$protects$neighborhood$character$ $ SomerVision$includes$detailed$maps$indicating$areas$to$conserve$(largely$residential$ neighborhoods),$areas$to$enhance$(Somerville’s$“funky$squares$and$corridors”),$and$areas$to$ transform$(five$neighborhoods$slated$for$significant$development$–$Assembly$Square,$Union$ Square,$Brickbottom,$Inner$Belt,$and$Boyton$Yards).$See$Appendix$XX$for$a$map.$$ $ SomerVision'also$incorporates$case$studies$of$successful$policy$initiatives$in$each$major$ policy$area$(such$as$transportation,$housing,$etc.),$recommended$action$steps$to$achieve$each$ goal,$and$an$initial$implementation$plan$to$achieve$each$goal.$Overall,$the$agenda$outlined$in$ SomerVision$is$a$community_driven$strategy$to$take$Somerville$forward$into$the$future$over$ the$next$thirty$years.$$$ $ $ $ $ $ $

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 43$ $ APPENDIX$E:$URBAN$RENEWAL$^$HISTORY,$PURPOSE,$AND$ FUNCTION$$ $ Urban$renewal$is$a$strategy$for$redeveloping$and$revitalizing$areas$that$have$experienced$ considerable$disinvestment.$Generally,$municipalities$across$Massachusetts$have$established$ redevelopment$agencies—such$as$the$Somerville$Redevelopment$Authority—to$design$and$ implement$urban$renewal$strategies$in$substandard,$decadent,$or$blighted$areas.$$ $ The$following$offers$a$brief$overview$of$urban$renewal,$along$with$the$process,$the$statutes,$ and$structures$that$govern$redevelopment$authorities$in$Massachusetts.$$ $ What$is$redevelopment?$ The$American$Planning$Association$defines$redevelopment$as$the$following:$ $ Redevelopment'describes'public'actions'that'are'undertaken'to'stimulate'activity'when'the' private'market'is'not'providing'sufficient'capital'and'economic'activity'to'achieve'the'desired' level'of'improvement.lxviii'' $ In$this$way,$redevelopment$refers$to$government$efforts$and$strategies$to$develop$areas$that$ have$experienced$significant$private$disinvestment$and$are$usually$designated$as$ substandard,$decadent,$or$blighted$as$a$result.$The$lack$of$investment$in$these$areas$usually$ results$in$suboptimal$economic$growth,$living$standards,$and$social$conditions.$ $ As$part$of$redevelopment$initiatives,$municipal$governments$can$create$and$implement$ redevelopment$urban$renewal$plans$to$promote$reinvestment$and$stabilization$of$specific$ defined$areas.$In$this$sense,$“redevelopment”$is$synonymous$with$“urban$renewal,”$though$ the$latter$refers$more$towards$the$particular$movement$during$the$mid_twentieth$century.$ $ What$are$redevelopment$authorities?$ All$aspects$of$redevelopment$fall$within$the$purview$of$“redevelopment$agencies,”$including$ the$Somerville$Redevelopment$Authority.$These$agencies$are$neither$public$nor$private.$They$ are$not$public$since$they$are$not$an$agency$within$the$city$government$directly$accountable$ to$the$mayor.$They$are$also$not$private$since$the$mayor$or$the$governor$appoints$them$and$ since$their$mission$is$also$publicly_oriented$with$an$eye$towards$enhancing$social$and$ economic$outcomes$for$the$Somerville$community.$Hence,$redevelopment$agencies$are$$ “quasi_public”$agencies$that$act$as$independent$bodies$or$commissions.$ $ In$Massachusetts,$General$Law$Chapter$121B$gives$redevelopment$authorities$the$power$to$ clear$an$area$is$substandard,$decadent,$or$blighted.$It$also$allows$redevelopment$authorities$ to$prepare$an$urban$renewal$plan$for$redevelopment$and$to$exercise$eminent$domain$land$ takings$to$further$the$purposes$of$its$city’s$urban$renewal$plans.$$$ $ Redevelopment$authorities$are$part$of$a$municipal$governments’$planning$and$economic$ development$apparatus—along$with$various$zoning$boards$and$planning$commissions— charged$with$overseeing$all$aspects$of$urban$renewal$and$reinvestment$in$areas$that$have$ been$designated$substandard,$decadent,$or$blighted.$$Ideally,$each$of$these$agencies$work$in$

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 44$ $ concert$with$one$another$to$coordinate$economic$development$strategies$that$meet$the$ values$and$goals$set$out$in$municipalities’$master$plans,$where$they$exist.$$ $ Please$refer$to$Section'5:'Policy'Options:'The'Range'of'Tools'and'Assets'Employed'by' Redevelopment'Authorities'for$a$comprehensive$analysis$of$redevelopment$authority$powers.$$ $ What$does$the$urban$renewal$process$look$like?$$ Urban$renewal$processes$are$extremely$dependent$on$the$specific$context$of$the$municipality$ in$which$they$take$place.$Still,$we$can$generalize$what$the$process$looks$like$in$Massachusetts$ according$to$the$steps$in$Figure'3.'' ' Figure'3:'The'Urban'Renewal'Process'in'Somerville' ' ' First,$the$redevelopment$agency$identifies$areas$that$would$likely$qualify$for$urban$renewal.$ Second,$the$agency$then$develops$an$urban$renewal$plan.$Third,$the$redevelopment$authority,$ planning$board,$legislative$body,$and$chief$executive$vote$to$approve$the$master$plan.$Fourth,$ the$plan$is$subject$to$approval$by$the$state$according$to$specific$guidelines$it$has$set$for$urban$ renewal$plans.$Fifth,$the$city$selects$a$developer$or$master$developer$to$implement$the$urban$ renewal$plan.$Sixth,$the$plan$is$then$implemented$and$development$occurs$over$5_20$years.$ Finally,$the$urban$renewal$area$has$transformed$into$an$economically$thriving$and$sustainable$ community.$$$ $ Community$involvement$is$a$key$component$of$the$urban$renewal$process.$In$Somerville,$for$ example,$community$involvement$is$woven$throughout$the$redevelopment$process.$ Similarly,$the$entire$process$should$be$guided$by$the$goals$and$values$of$the$city’s$master’s$ plan.$$ 7$.$Economic$transformation$ 6.$Implement$plan$and$undertake$development$ 5.$Selection$of$redeveloper$ 4.$State$reviews$and$approves$plan$ 3.$SRA,$Planning$Board,$City$council$and$Mayor$approve$plan$ 2.$Develop$urban$renewal$plan$with$citizen$engagement$ 1.$Identify$areas$of$disinvestment$ Citizen' Participation' SomerVision'

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 45$ $ $ Who$participates$in$redevelopment$authorities?$ In$Massachusetts,$each$redevelopment$authority$has$five$members.$Of$those$five$members,$ the$municipal$executive$(e.g.$the$mayor)$appoints$four$who$then$must$be$approved$by$the$ city$council.$The$state,$through$the$Department$of$Housing$and$Community$Development,$ appoints$the$remaining$member.$Each$member$serves$a$staggered$five$year$term.$In$most$ instances,$one$individual$is$designated$the$chair$of$the$authority.$The$Chair$leads$the$ meetings$and$acts$as$the$key$liaison$between$the$redevelopment$authority$and$an$Executive$ Director$and/or$other$municipal$staff$supporting$the$redevelopment$authority.$$ $ In$addition$to$agency$members,$a$number$of$other$city$officials$work$to$coordinate$economic$ development$strategies.$The$SRA$works$directly$with$a$city’s$planning,$zoning,$housing,$and$ economic$development$offices.$Most$explicitly,$some$municipalities$have$hired$an$executive$ director$and$other$staff$members$partially_$or$fully_dedicated$to$supporting$their$ redevelopment$authorities.$ $ What$is$the$history$of$redevelopment$agencies?$ Municipalities$across$the$United$States$originally$began$to$charter$redevelopment$agencies$in$ the$1950s$and$1960s$in$response$to$the$federal$initiatives$and$grants$encouraging$municipal$ urban$renewal$projects.$While$those$federal$programs$no$longer$exist,$many$redevelopment$ authorities$continue$to$play$the$primary$agency$role$in$their$municipalities$with$respect$to$ redevelopment$and$community$revitalization.$$ $ Across$the$United$States$the$landscape$of$redevelopment$authorities$has$changed$ dramatically$in$the$past$decade.$Most$recently,$the$California$legislature$passed$and$ Governor$Jerry$Brown$(D_CA)$signed$into$law$a$bill$that$abolished$the$state’s$redevelopment$ authorities.lxix$This$bill$was$later$upheld$by$the$State$Supreme$Court,$despite$appeals$from$ California$municipalities$and$redevelopment$authorities.lxx$$ $ This$movement$has$been$fuelled$in$part$by$increasing$public$perception$that$redevelopment$ agencies$have$been$used$to$favor$wealthy$developers$rather$than$to$promote$public$value.$ While$this$perception$exists$to$an$extent$in$Massachusetts,$there$has$not$been$any$such$ dissolution$movement$in$the$Commonwealth.$$$ $ $ $

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 46$ $ APPENDIX$F:$ORGANIZATIONAL$CHART,$CITY$OF$SOMERVILLElxxi$$ $ $ $

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 47$ $ APPENDIX$G:$$REDEVELOPMENT$AUTHORITY$INTERVIEW$ SUMMARY$ $ As$determined$by$Massachusetts$General$Law$121B,$all$redevelopment$authorities$we$spoke$ with$are$5_member$boards$with$four$members$appointed$by$the$mayor$and$the$fifth$appointed$ by$the$governor.$However,$aside$from$that$commonality,$each$redevelopment$authority$had$ specific$staffing,$financing,$and$operational$characteristics$unique$to$the$municipality$it$ serves.$The$following$summarizes$qualitative$interviews$with$officials$serving$on$or$supporting$ in$some$capacity$the$redevelopment$authority$of$each$municipality.$$ $ $ Massachusetts$Redevelopment$Authorities$–$Main$Findings$ City$of$Salem$ Staffing$ Financing$ Operations/Policy$ • Executive$director,$who$ also$serves$as$the$Director$ of$Planning$and$ Community$Development$$ • No$other$independent$staff$ members$ • No$dedicated$revenue$ stream$ • No$financial$benefit$ from$property$ ownership$(e.g.$cede$ parking$lot$revenues$to$ city)$ • Keeps$proceeds$from$ real$estate$transactions$$ $ • RA$owns$some$property$from$past$work,$but$cedes$ management$to$the$city$$ • Today,$ownership$temporary;$part$of$“property$ transfer”$process$when$selecting$developer$$ • Can$use$profit$from$real$estate$transactions$for$ administrative$costs$(e.g.$hiring$consultants;$ surveys;$appraisals)$ • Unique$design$board$with$non_binding$vote$!$RA$ for$binding$vote$in$urban$renewal$areas$ City$of$Brockton$ Staffing$ Financing$ Operations/Policy$ • Executive$director$ • Staff$of$four$–$finance$(1),$ programmatic$(2),$ED$(1)$ • Board$had$selection$ committee$for$ED;$selected$ at$their$discretion$ • ED$hires$staff,$with$board$ authority$ $ • Nearly$all$block$grant$ funding,$very$little$ comes$from$the$city$ • E.g.$HOME$grants,$ CDBGs,$etc$ • Doesn’t$have$ independent$funding$to$ acquire$property$ $ • Only$very$recently$has$considered$doing$urban$ renewal$projects$$ • Receives$and$administers$CDBGs$and$HOME$ funding$(affordable$housing$grants)$ • Provides$assistance$for$low$and$moderate$income$ residents;$works$with$nonprofits$$ • Business$loans$(e.g.$business$loans$for$façade$ improvement)$ • Big$focus$on$abandoned$or$foreclosed$home;$work$ with$housing$developers$$ • Tries$to$not$own$or$manage$property,$but$often$ acts$as$receiver$of$property$to$bring$up$to$state$ code$$ $ $

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 48$ $ Massachusetts$Redevelopment$Authorities$–$Main$Findings$ City$of$Cambridge$ Staffing$ Financing$ Operations/Policy$ • Executive$director,$hired$ and$reports$to$RA$ • All$board$members$ relatively$new;$RA$“went$ dark”$for$a$while$and$is$ only$recently$resurrected$$ • Is$self_financing$due$to$ acquisition$and$selling$ of$property;$massive$ development$$$ • Money$from$land$ holding$rights$and$sale$ to$developer$ • Recently$strategic$planning$process:$What$ structure$made$sense$for$Cambridge?$$ • Examined$history,$needs$of$city,$interaction$with$ other$agencies,$developed$list$of$two$dozen$ideas$ and$did$strategic$planning$with$community$ • Owns$and$manages$property$$ • Micro$community$grant$program,$public$ improvements;$redistribute$the$value$of$ development$to$the$rest$of$the$community$$ • Lots$of$public$private$partnerships$to$induce$ market$to$serve$public$ends$$ • Uses$“courbanize.com”$as$platform$for$civic$ engagement$$ • Suggests$more$transparency;$not$just$open$but$ proactive$engagement$beyond$open$meeting$law$ requirements$$ City$of$Malden$ Staffing$ Financing$ Operations/Policy$ • Executive$director$$ • $Staff$of$~16$people$to$ manage$programs,$grants,$ loans$(see$financing)$ • Independent,$doesn’t$ report$to$mayor,$but$works$ closely$with$other$ development$agencies$$ • Multiple$revenue$ streams$$ • Fees$from$owning$(but$ not$managing$parking$ lots)$$ • Administrative$fees$ from$federal$and$state$ grants$–$CDBGs,$ • Since$the$90s$close$to$ $16m$in$grants$ • Able$to$debt$finance$ • Issues$loans$to$get$property$up$to$code,$rehabilitate$ houses$$ • Owns$parking$garages$and$contracts$management$ out$to$consultant$$ • HOME$(affordable$housing)$and$CDBG$grants$$ • Does$much$more$than$redevelopment$–$housing,$ parking,$infrastructure,$community$development$$ • Has$engaged$neighborhood$cities$in$regional$ redevelopment$projects$$ • Wants$more$modern$community$outreach$(e.g.$ social$media)$$ City$of$Worcester$ Staffing$ Financing$ Operations/Policy$ • Chief$Development$Officer$ –$head$of$all$planning$–$is$ CEO$of$redevelopment$ authority$ • All$staff$is$city$staff;$used$to$ have$independent$staff$but$ city$stepped$in$after$series$ of$lawsuits$in$the$90s$ regarding$takings$ decisions;$restructured$ staffing$accordingly$so$less$ independent$$ • No$independent$ funding$sources,$city$ appropriate$operating$ capital$for$agreements$$ • Owns$one$property$but$ not$enough$revenue$to$ sustain$operations$ independently;$ financing$to$manage$it$ annually$appropriated$ in$omnibus$bill$ • Weekly$meeting$with$all$economic$development$ stakeholders$to$coordinate$actions$ • Board$members$–$applicants$for$all$city$boards$and$ commissions$submitted$to$citizen$committee$$ • Committee$makes$recommendations,$not$binding,$ to$city$manager$$ • Board$members$can$serve$no$more$than$two$terms$$ • General$model$is$to$serve$as$property$intermediary$ $ $

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 49$ $ Massachusetts$Redevelopment$Authorities$–$Main$Findings$ City$of$Everett$ Staffing$ Financing$ Operations/Policy$ • Executive$Director$of$newly$ launched$redevelopment$ authority$also$serves$as$ Executive$Director$of$ Planning$&$Development$ • No$other$independent$staff$$ • Will$require$city$council$ appropriations$and$ federal$and$state$grant$ funding$$ $ • Newly$approved$RA;$created$in$response$to$desire$ for$urban$renewal$in$Lower$Broadway$ neighborhood$ • Casino$project$further$reinforced$the$desire$for$an$ RA$ • Expect$RA$to$be$solely$focused$on$urban$renewal$$ City$of$Lowell$ Staffing$ Financing$ Operations/Policy$ • Urban$Renewal$Project$ Manager$supports$City$ Council$as$the$ Redevelopment$Authority$ along$with$team$of$city$staff$ within$the$planning$ department$$ • Federal$and$state$grants$ • Public_private$ partnership$with$ development$partner$ Trinity$Financial$$ • City$Council$serves$as$RA$due$to$’76$state$law$ dissolving$LRA$and$granting$council$RA$powers$ • All$property$and$revenues$are$therefore$associated$ with$the$city$$ • Focused$on$three$urban$renewal$plans$ • Significant$engagement$with$community$as$a$result$ of$city$council$involvement$$ • Developed$community$groups$in$urban$renewal$ neighborhoods$without$groups$$ City$of$Springfield$ Staffing$ Financing$ Operations/Policy$ • Executive$Director$hired$by$ city,$fully$dedicated$to$RA$ • No$other$independent$staff$ • Extensive$federal$and$ state$grants$$ $ • Newest$project$$85$million$dollar$–$Union$Station$_$ doing$fundraising$and$construction$$ • Member$of$Develop$Springfield$$ • Working$on$Innovation$District$downtown$$ $ $ $ $ $ $ $ $

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 50$ $ APPENDIX$H:$BACKGROUND$ON$SOMERVILLE$ $ Somerville$is$a$small$city,$geographically$only$4.2$square$miles,$of$approximately$80,000$ residents.$Like$many$cities$in$New$England,$Somerville$is$organized$around$neighborhoods$ called$“squares,”$which$act$as$centers$of$commercial$activity.$For$example,$Davis$Square$and$ Union$Square$represent$bustling$parts$of$the$city$with$restaurants,$coffee$shops,$and$ independent$boutiques.$Located$just$north$of$Cambridge,$the$City$of$Somerville$attracts$ students$(due$to$its$proximity$to$Harvard,$MIT,$and$Tufts),$young$professionals,$and$young$ families.$The$population$is$highly$educated,$with$about$a$quarter$of$the$population$with$ bachelor’s$degrees$and$another$quarter$of$the$population$with$graduate$or$professional$ degrees.$Somerville$also$boasts$a$large$community$of$artists,$which$contributes$to$the$ creative,$innovative$culture$of$the$community.$$ $ Historically,$the$City$of$Somerville$was$made$up$of$largely$Italian$and$Irish$immigrant$ communities$that$worked$in$traditional$manufacturing$industries.$Similar$to$many$other$ cities$in$Massachusetts$and$in$the$United$States,$Somerville$saw$the$manufacturing$facilities$ that$employed$many$residents$close$in$the$1970s.$Therefore,$over$the$last$two$decades$of$the$ 20th$century,$Somerville$experienced$relatively$low$levels$economic$growth$and$real$estate$ investment.$Consequently,$there$was$relatively$little$economic$development$activity$ undertaken$by$the$City$of$Somerville$during$that$time.$However,$over$the$last$8_10$years,$ Somerville$residents$have$benefited$from$the$growth$of$highly$skilled$technology_related$jobs$ in$the$Boston$metro$area,$particularly$Cambridge.$Recently,$Somerville’s$proximity$to$jobs,$to$ major$universities,$and$to$public$transit$(particularly$with$the$anticipated$Green$Line$ Extension)$has$led$to$slow,$but$somewhat$steady$increases$in$the$number$of$small$businesses$ as$restaurants,$coffee$shops,$and$independent$boutiques$open$their$doors$to$Somerville$ residents$and$visitors$from$neighboring$cities.$$ $ Somerville’s$transition$away$from$manufacturing$has$created$opportunities$for$major$urban$ renewal$and$redevelopment$projects.$Mayor$Joseph$Curtatone$has$been$instrumental$in$ initiating$these$projects$and$planning$for$future$projects$over$the$course$of$his$six$terms$in$ office.$When$economic$development$projects$have$been$initiated$by$the$City,$these$projects$ have$been$undertaken$by$a$partnership$between$the$City$of$Somerville’s$Office$of$Strategic$ Planning$and$Community$Development$(OSPCD)$and$the$Somerville$Redevelopment$ Authority$(SRA).$$$ $ $

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 51$ $ APPENDIX$I:$SOMERVISION$MAPlxxii$$ $ $

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 52$ $ REFERENCES$ $$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$ i$Office$of$Strategic$Planning$and$Community$Development,$City$of$Somerville,$SomerVision:' Comprehensive'Plan'2010c2030,'April$12,$2012.$$ ii$City$of$Somerville,$“US2$Selected$as$Union$Square$Master$Developer,”$June$27,2014.$$ iii$Massachusetts$Department$of$Transportation$(MassDOT),$Green$Line$Extension$Project$Area$Map,$ accessed$March$26,$2015,$ http://greenlineextension.eot.state.ma.us/documents/about/ProposedMap/projectMap.pdf.$ iv$Springer,$Shira,$“Will$the$Green$Line$Extension$make$Somerville$real$estate$go$crazy?”$The'Boston' Globe,'May$8,$2014.$$ v$“Best$Places$to$Live$2012,”Boston'Magazine,$March$2012.$$ vi$Meeting$with$Mayor$Joe$Curtatone,$October$8,$2014.$$ vii$Ashley$A$Foard$and$Hilbert$Fefferman,$“Federal$Urban$Renewal$Legislation,”$Duke'Law'School' Review,$April$14,$1987.$ viii$Commonwealth$of$Massachusetts,$Massachusetts$General$Laws,$Chapter$121B,$Section$46,$accessed$ March$28,$2015,$https://malegislature.gov/Laws/GeneralLaws/PartI/TitleXVII/Chapter121B/Section46.$ ix$Commonwealth$of$Massachusetts,$Massachusetts$General$Laws,$Chapter$121B,$Section$5,$accessed$ March$28,$2015,$https://malegislature.gov/Laws/GeneralLaws/PartI/TitleXVII/Chapter121B/Section5.$ x$City$of$Somerville.$“Somerville$Redevelopment$Authority,”$Accessed$March$28,$2015,$ http://www.somervillema.gov/departments/somerville_redevelopment_authority.$ xi$Moore,$Mark$H,$Creating'Public'Value:'Strategic'Management'in'Government'(United$States:$Harvard$ University$Press,$1997).$$ xii$Leonard,$Herman$B,$“A$Short$Note$on$Public_Sector$Strategy$Building,”$developed$for$classroom$ discussion$at$Harvard$University,$John$F.$Kennedy$School$of$Government,$May$2002,$(1_10).$ xiii$Ibid,$(2).$ xiv$Commonwealth$of$Massachusetts,$Massachusetts$General$Laws,$Chapter$30B,$Section$1,$accessed$ March$28,$2015,$https://malegislature.gov/Laws/GeneralLaws/PartI/TitleIII/Chapter30B/Section1.$ xv$Foard$and$Fefferman,$“Federal$Urban$Renewal$Legislation.”$$ xvi$Interview$with$Carol$Wolfe,$February$12,$2015.$$ xvii$Interview$with$Eileen$McGettigan,$December$3,$2014.$$ xviii$City$of$Somerville,$“City$Seeking$Applications$for$Vacant$Somerville$Redevelopment$Authority$ Position,”$accessed$March$28,$2015,$http://www.somervillema.gov/alerts/sra_board_seeking_new_ member.$

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 53$ $ $$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$ xix$Interview$with$George$Proakis,$November$17,$2014.$$ xx$City$of$Somerville,$“Union$Square$Community$Advisory$Committee$selected,”$Boston.com,$January$15,$ 2014,$ http://www.boston.com/yourtown/news/somerville/2014/01/union_square_community_advisory_com mittee_selected.html$ xxi$City$of$Somerville,$“City$Delegation$to$Undertake$Due$Diligence$Visits$to$Union$Square$Master$ Developer$Projects,”$May$22,$2014,$http://www.somervillema.gov/news/city_delegates_make_due_ diligence_visits_union_square_developer_projects.$ xxii$Atkinson,$Dan,$“US2$chosen$to$develop$Somerville's$Union$Square$at$contentious$meeting,”$The' Somerville'Journal,$June$26,$2014,$http://somerville.wickedlocal.com/article/20140626/News/140627075.$ xxiii$Ibid.$$ xxiv$Interviews$with$Michael$Glavin,$Eileen$McGettigan,$Nancy$Busnach,$and$Wig$Zamore,$October$8,$ 2014,$November$17,$2014,$and$December$11,$2014$(for$both$Busnach$and$Zamore),$respectively.$$ xxv$Hardy,$Van,$Talun,$Tim,$and$Buchanan,$Rob,.$“Union$Square$redevelopment$lacking$long_term$ vision$to$meet$community$goals,”The'Somerville'Times,$March$25,$2015,$ http://www.thesomervilletimes.com/archives/57175.$ xxvi$Union$United,$“Putting$‘community’$in$community$benefits,”$The'Somerville'Times,'January$14,$2015,$ http://www.thesomervilletimes.com/archives/55288.;$Atkinson,$Dan$and$McLean,$Danielle,$“Somerville$ Mayor:$CBA$comes$before$Union$Square$development,”$The'Somerville'Journal,$March$26,$2015,$ http://somerville.wickedlocal.com/article/20150326/NEWS/150327437.$ xxvii$Yuan,$Yuxiao,$“Union$United$Protests$Union$Square$Planning,”$Somerville$Community$Access$ Television$Channel$3,$March$25,$2015,$http://www.scatvsomerville.org/news/union_united_protests_ union_square_planning/.$ xxviii$Interview$with$Aldermen$Mark$Niedergang,$February$27,$2015,$Interview$with$Aldermen$Bill$White,$ March$3,$2015.$$$ xxix$City$of$Somerville,$“Squares$and$Neighborhoods$–$Assembly$Square,”$accessed$March$28,$2015,$ http://www.somervillema.gov/departments/ospcd/squares_and_neighborhoods/assembly_square$ xxx$City$of$Somerville,$“Union$Square$Redevelopment,”$accessed$March$28,$2015,$ http://www.somervillema.gov/departments/ospcd/economic_development/union_square_ redevelopment$ xxxi$“Organizing$for$Economic$Development$–$Models$and$Options,”$Massachusetts$Department$of$ Housing$and$Community$Development.$ xxxii$Ibid.$ xxxiii$Foard$and$Fefferman,$“Federal$Urban$Renewal$Legislation.”$

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 54$ $ $$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$ xxxiv$Slade,$Rachel,$“The$Authority,”$Boston'Magazine,'June$2013,$ http://www.bostonmagazine.com/news/article/2013/05/28/boston_redevelopment_authority/.;$Murphy,$ Sean$P.$and$Allen,$Scott,$“A$quiet$deal$done$on$a$prime$Boston$waterfront$site,”$The'Boston'Globe,'April$ 7,$2013,$http://www.bostonglobe.com/metro/2013/04/06/waterfront_suspicious_land_deal_friend_mayor_ and_lots_questions/YmfWGHp1IaUdntfO9VfSFI/story.html.$ xxxv$Commonwealth$of$Massachusetts,$Massachusetts$Acts$of$1976,$Chapter$353,$approved$September$7,$ 1976,$accessed$March$28,$2015,$ http://archives.lib.state.ma.us/bitstream/handle/2452/28101/1976acts0353.txt?sequence=1&isAllowed=y.$ xxxvi$Interview$with$Craig$Thomas,$March$10,2015.$ xxxvii$Commonwealth$of$Massachusetts,$Massachusetts$General$Laws,$Chapter$43C,$Section$12,$accessed$ March$28,$2015,$https://malegislature.gov/Laws/GeneralLaws/PartI/TitleVII/Chapter43C/Section12.$ xxxviii$Develop$Springfield,$Accessed$March$28,$2015,$http://developspringfield.com/.$ xxxix$Commonwealth$of$Massachusetts.$Massachusetts$General$Laws,$Chapter$121B,$Section$46.$Accessed$ March$28,$2015.$https://malegislature.gov/Laws/GeneralLaws/PartI/TitleXVII/Chapter121B/Section46$ xl$Ibid.$ xli$Interview$with$Robert$Jenkins,$February$5,$2015.$$ xlii$Interview$with$Andrew$Shapiro,$February$3,$2015.$ xliii$Interview$with$Tom$Evans,$February$10,$2015.$$ xliv$Interview$with$Deborah$Burke,$February$13,$2015.$$ xlv$City$of$Springfield,$“Springfield$Union$Station,”$accessed$March$28,$2015,$http://www3.springfield_ ma.gov/planning/union_station.html.$ xlvi$Interview$with$Michael$Traynor,$February$18,$2015.$ xlvii$Interview$with$Tom$Evans,$February$10,$2015.$$ xlviii$Interview$with$Robert$Jenkins,$February$5,$2015.$$ xlix$Interview$with$Deborah$Burke,$February$13,$2015.$$ l$Interview$with$Tom$Evans,$February$10,$2015.$$ li$Interview$with$Andrew$Shapiro,$February$3,$2015.$$ lii$Interview$with$Deborah$Burke,$February$13,$2015.$$ liii$Interview$with$Jamie$Errickson,$February$27,$2015.$$ liv$Interview$with$Robert$Jenkins,$February$5,$2015.$$

The$Future$of$the$Somerville$Redevelopment$Authority$ Aligning'Governance'with'Economic'Strategy' 55$ $ $$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$$ lv$Interviews$with$Andrew$Shapiro,$Michael$Traynor,$and$Jamie$Errickson,$respectively.$$ lvi$Interview$with$Chris$Moskal,$March$6,$2015.$$ lvii$Interviews$with$Robert$Jenkins,$Tom$Evans,$and$Deborah$Burke.$$ lviii$Interview$with$Michael$Traynor,$February$18,$2015.$ lix$Interview$with$Michael$Traynor,$February$18,$2015.$ lx$Interview$with$Tom$Evans,$February$10,$2015.$$ lxi$Interview$with$Tom$Evans,$February$10,$2015.$$ lxii$Interview$with$Craig$Thomas,$March$10,$2015.$$ lxiii$Interview$with$Deborah$Burke,$February$13,$2015.$$ lxiv$Cambridge$Conversations.,$accessed$March$28,$2015,$http://courbanize.com/cambridge_ conversations/$ lxv$Boston$Redevelopment$Authority,$accessed$March$28,$2015,$http://www.bostonurbanrenewal.org$ lxvi$Interview$with$Mark$Neidergang,$February$20,$2015.$ lxvii$Office$of$Strategic$Planning$and$Community$Development,$City$of$Somerville,$SomerVision:' Comprehensive'Plan'2010c2030,'April$12,$2012.$ lxviiiAmerican$Planning$Association,$“Policy$Guide$on$Public$Redevelopment,”$April$25,$2004,$accessed$ March$28,$2015,$https://www.planning.org/policy/guides/adopted/redevelopment.htm.$ lxix$Lagos,$Marisa,$“Calif.$wins$OK$to$abolish$redevelopment$agencies,”$SFGate,'December$30,$2011,$ http://www.sfgate.com/politics/article/Calif_wins_OK_to_abolish_redevelopment_agencies_2431012.php$ lxx$Dolan,$Maura,$Garrison,$Jessica,$and$York,$Anthony,$“California$high$court$puts$redevelopment$ agencies$out$of$business,”$The'Los'Angeles'Times,'December$29,$2011,$ http://articles.latimes.com/2011/dec/29/local/la_me_redevelopment_20111230$ lxxi$City$of$Somerville,$$“Somerville$FY2014$Budget,”$available$at$ http://www.somervillema.gov/sites/default/files/FY14_BudgetMaster.pdf.$ lxxii$Office$of$Strategic$Planning$and$Community$Development,$City$of$Somerville.$SomerVision:' Comprehensive'Plan'2010c2030,'(17)'April$12,$2012.$