160324 Portsmouth Master Plan v2

PORTSMOUTH 2025 DRAFT MASTER PLAN VERSION DATE 3/24/16

DRAFT 3/24/16

DRAFT 3/24/16

TABLE OF CONTENTS

INTRODUCTION 5 PLANNING THEMES

21

VIBRANT AUTHENTIC DIVERSE CONNECTED RESILIENT

FOCUS AREAS 65 URBAN CORE CORRIDOR URBAN NEIGHBORHOOD SUBURBAN NEIGHBORHOOD PARKS & OPEN SPACE

IMPLEMENTATION PLAN

DRAFT 3/24/16

125

4

INTRODUCTION

DRAFT 3/24/16

PORTSMOUTH 2025

INTRODUCTION PORTSMOUTH 2025 IS THE RESULT OF AN EXTENSIVE PROCESS, ONE THAT HAS EXPLORED EXISTING CONDITIONS IN PORTSMOUTH AND HAS DEVELOPED A VISION FOR THE FUTURE OF THE CITY BASED ON ITS STAKEHOLDERS’ PRIORITIES AND THE EXPECTED CHALLENGES OF THE NEXT DECADE.

It should be noted that the City has successfully implemented key components of the 2005 plan in recent years. A broad overview of our interviews and materials, including the 2013 Update on Implementation Plan, suggest that while much has been achieved in the last decade, much remains to be completed, and new challenges that were not well understood, such as climate change, will have enormous impacts on the future. Additionally, the interviews and literature review were done in advance of the Portsmouth Listens process.

PLANNING PROCESS

The following is a summary of the Key Findings for each section of the Existing Conditions Report as organized by the Master Plan components.

EXISTING CONDITIONS REPORT The consultant team spent several months gathering information, visiting Portsmouth, and interviewing departmental staff in order to gain a thorough understanding of prior planning efforts and existing conditions.

The existing conditions report extensively summarizes the team’s research while simultaneously serving as an update to the 2003 Existing Conditions report. The report, outlines prior plans, progress made since the 2005 Master Plan, and summarizes existing conditions and elements of prior plans that should be advanced in the 2015 Master Plan. The full Existing Conditions Report can be found in the appendices.

PORTSMOUTH 2025

POPULATION AND SOCIAL CHARACTERISTICS Portsmouth’s population is expected to grow at a very slow pace, approaching 22,000-23,000 in the next 30 years.

However, in the 2010-2020 period population is expected to slightly decrease. Incomes for residents of Portsmouth are about the same as state and county averages although slightly less than neighboring communities.

Despite this stability in total population, the demographic composition of Portsmouth has changed during the last decade in the following ways: • The 45-64 year old age cluster is growing faster than any other, and median age

DRAFT 3/24/16

INTRODUCTION

5

INTROD PORTSMOUTH 2025 AN INTRODUCTION

increased from 38.5 years to 41.1 years from 2000 to 2010.

• The family-creating demographic group of 30-44 year olds has decreased by 17% from 2000 to 2010.

other land use regulations have increased flexibility in corridor areas, with a specific

ly-educated compared with the rest of the

goal of enhancing visual character and

state and region. 48.7% of residents had at

environmental quality, as well as encour-

least 4 years of college education, whereas

aging affordable housing and mixed use

Rockingham County and New Hampshire

development.

had rates of 36.6% and 32.9%, respectively.

• Character and overlay districts have been

numbers increase in the last decade more than the county or the state.

established in significant portions of the city, extending from Downtown into the West and North Ends, in order to encourage consistent form. However these district

LAND USE Portsmouth contains a healthy mix of residential, commercial and industrial land uses, but less than 1% of the within the City’s boundaries is available for greenfield development. Much of the remaining undeveloped publicly owned land and private land cannot be developed due to wetland restrictions.

Future growth in Portsmouth will need to come from redevelopment of existing commercial and industrial areas that public or private developers can repurpose and rebuild with more density. Additionally, much of the historic downtown core and surrounding Character Districts more closely control the forms and uses of new buildings, which limits development potential.

Residentially zoned areas of the city comprise 34% of the city but residents are traditionally resistant to increasing density, adding further challenges to

INTRODUCTION

• Changes to the zoning ordinance and

• The population of Portsmouth is high-

Furthermore, Portsmouth has seen those

6

the repurposing of commercial and industrial lands. Other significant land use findings include:

regulations can be in conflict with market demands for larger buildings, greater lot coverage, and parking.

• Site plan review regulations encourage low impact development practices but do not require them, nor do they provide specific metrics for success.

• Zoning regulations in residential districts have created many non-conforming parcels, which necessitates special permits or variances for minor changes.

• Industrial parcel sizes may not reflect the needs of current or desired future industrial uses.

• Commercial parcel sizes and office typologies may not reflect the needs of current or desired future commercial uses.

• Parking requirements are not sufficiently flexible to reflect the actual needs of smaller residential units, mixed uses, and changing demographics.

DRAFT 3/24/16

PORTSMOUTH 2025

DUCTIO HOUSING

and 1-bedroom units) currently comprise

Portsmouth is an older and mostly built-out city. Portsmouth is job rich, with 2.24 jobs for every member of the resident workforce. This inevitably means that many people who work in Portsmouth do not live in the City, putting pressure on roads and parking infrastructure. Despite robust growth in Downtown, Portsmouth’s population has not increased and housing costs are rising faster than incomes. Furthermore, Portsmouth’s aging population is increasingly housing cost-burdened as are residents making 80-120% of median income. While Portsmouth Housing Authority manages enough affordable housing to satisfy the City’s fair share burden, a large number of residents of family-creating age (30-44) are moving out, in part because of the high cost of housing.

about 20 percent of the units in Ports-

• There are rental cost-wage and ownership cost-wage imbalances, making it very difficult for people to afford to live in Portsmouth. 44 percent of renters and 34 percent of owners are housing cost-burdened.

• 28 percent of home owners without mortgages are housing cost-burdened, with insurance, taxes, and maintenance costs at more than 30 percent of their annual income.

mouth.

• An aging population could require more senior and affordable housing options in the near future.

• Approximately 55 percent of residents would be unable to affordably purchase a home in Portsmouth at current income distributions and housing costs.

• The approvals process in Portsmouth can be burdensome and uncertain, leading many developers to seek projects with luxury rather than affordable housing.

• Affordable housing incentives in the Downtown have failed to result in any affordable housing development.

ECONOMIC DEVELOPMENT Portsmouth has a very diverse economic base and a large number of jobs relative to its population. While tourism is important to the Downtown, accommodation, food service art and entertainment only account for 13 percent of all jobs. Trends in employment, lack of available office and industrial space, and a shortage of vacant land suggest potential needed changes to land use.

Other important findings relative to economic development include: • Professional, Scientific, and Technical Services and Health Care and Social Assis-

• There is very limited undeveloped land on

tance are the industries projected to grow

which to build new residential uses.

the most over the 2010-2020 period, at 23.9%

• 39 percent of people living in Portsmouth

and 22.4% respectively.

live alone, but small housing units (studio

• Portsmouth had a total of 11.8 million sf of

PORTSMOUTH 2025

DRAFT 3/24/16

INTRODUCTION

7

INTROD PORTSMOUTH 2025 AN INTRODUCTION

industrial space in 2013, and vacancy rates that year decreased to 3.4 percent.

• Start-up incubation (creative and entrepreneurial) is a priority for the economic

development community, and could be a

means of retaining manufacturing jobs and increasing business growth. Alpha Loft and other incubator spaces have emerged to house small and start-up businesses.

• Currently, the potential supply of industrial and commercial space is not well understood, especially with respect to the City’s future economic priorities.

TRANSPORTATION Since 2005, Portsmouth has made progress in incorporating Complete Streets principles into road projects throughout the city. The City completed a Bicycle and Pedestrian Plan outlining a list of priority improvements to enhance alternative mobility. Since the 2012 Parking Supply and Demand Analysis, the City has made a number of parking-related updates to its zoning policy to promote and allow better conditions for park-once environments and shared parking. The City has improved public transit options for evening and weekend activities and special events through the implementation of a free parking shuttle pilot that runs from May to December (started in 2014) and a vintage Christmas trolley in December. The City is also in the process of reviewing significant new downtown projects that include new structured

8

INTRODUCTION

parking spaces. Other significant findings relative to transportation include:

• While transit options have improved

somewhat at transit hubs, access is infrequent in corridor areas and transit can be difficult to use in part because of limited information for users.

• Although new parking structures are under consideration for Downtown, parking demand management continues to be a priority for the City.

• While several recommendations from the city’s Bike and Pedestrian Plan have been implemented, many others have not.

• Parking demand continues to be high for uses outside the downtown because alternative modes of transportation are limited and walking is unsafe or unpleasant.

• Some major roads, particularly portions of the Route 1 Bypass, may have excess capacity while simultaneously creating barriers and limiting neighborhood access to services.

• New Hampshire DOT is proposing to widen southern portions of Route 1 to four lanes in the future and is reviewing road design in the section of Route 1 that includes the rotary.

COMMUNITY SERVICES AND FACILITIES Due to a decreasing population of families and stable total population, the public school system, fire and police facilities are generally sufficient for the current and projected population. The

DRAFT 3/24/16

PORTSMOUTH 2025

DUCTIO school system has available capacity in current facilities, with the high school at 77.65 percent capacity, the middle school at 85.85 percent, and the elementary schools at 91.57 percent.

Given the very slow rate of growth projected for enrollment, these facilities should be adequate for the foreseeable future. The City is investing in a major sewage treatment plant upgrade at Pierce Island that will reduce impacts to the Piscataqua River, while continuing to invest in innovative storm water treatments for public rights of way. The City has also increased the amount of solid waste diverted from landfills over the past 20 years, from 0 percent to 55 percent. Some policies and conventions, however, are not in line with national best practices: • Although site plan review guidelines promote Low Impact Development techniques, stormwater regulations for private property alterations lack specific targets or metrics.

NATURAL RESOURCES AND OPEN SPACE AND RECREATION

While Portsmouth has historically faced low risk from natural disasters, it is a coastal community in one of the most vulnerable coastlines in the country; climate change and sea level rise pose the most significant risk to Portsmouth in the coming years. Precipitation, winds, and rising tides will test the resiliency of city infrastructure and critical facilities like fire, police, and evacuation routes and emergency shelters. Likewise, uncertainty in the supply of energy and drinking water could mean shortages and higher prices that will test municipal services.

Residents have expressed a strong desire that the city take steps to reduce greenhouse gas emissions and conserve other resources that will help to preserve the environment for future generations.

Specific findings relative to natural hazards and climate change include:

• The city has studied a stormwater utility

• Evacuation routes and critical facilities

program to fund needed capital improve-

are likely to be affected by both high- and

ments to aging infrastructure.

low- SLR scenarios.

• The city is soliciting contractors to assist

• City facilities, as currently situated, are

in all or part of waste management.

vulnerable to climate change impacts.

• The current emergency shelter at the high

• Commercial and residential areas are also

school does not work well during school

vulnerable to sea level rise.

periods

• Emergency shelter at the High School is

• The city has not evaluated the potential

not considered ideal.

for renewable energy production from solar, hydro or from the Pierce Island WWTP.

PORTSMOUTH 2025

DRAFT 3/24/16

INTRODUCTION

9

INTROD PORTSMOUTH 2025 AN INTRODUCTION

NATURAL HAZARDS AND CLIMATE CHANGE

CULTURAL AND HISTORIC RESOURCES

While Portsmouth has historically faced low risk from natural disasters, it is a coastal community in one of the most vulnerable coastlines in the country; climate change and sea level rise pose the most significant risk to Portsmouth in the coming years. Precipitation, winds, and rising tides will test the resiliency of city infrastructure and critical facilities like fire, police, and evacuation routes and emergency shelters. Likewise, uncertainty in the supply of energy and drinking water could mean shortages and higher prices that will test municipal services.

Residents have expressed a strong desire that the city take steps to reduce greenhouse gas emissions and conserve other resources that will help to preserve the environment for future generations.

Specific findings relative to natural hazards and climate change include:

The arts contribute $41.4 million to the overall Portsmouth economy.

The Cultural Plan identified the severe shortage of affordable space in Portsmouth is the greatest challenge facing artists and cultural organizations.

For instance, the Portsmouth Children’s Museum (now the Children’s Museum of New Hampshire) moved to Dover in 2008 after unsuccessfully searching for affordable space in Portsmouth. Yet, despite high land costs, facilities at #3S Artspace, Portsmouth Art Museum, Discover Portsmouth, and the Button Factory have thrived in the last decade without requiring significant public subsidy. Art-Speak continues to promote the arts and Percent for Arts Ordinance continues to create important public funding.

• Evacuation routes and critical facilities are likely to be affected by both high- and low- SLR scenarios.

• Some City facilities, such as schools and sewage facilities, are especially vulnerable to climate change impacts.

• Commercial and residential areas are also vulnerable to sea level rise.

• The emergency shelter at the High School is not considered ideal, given the need to maintain education operations.

10

INTRODUCTION

Portsmouth’s historic core, including Downtown, contributes to the unique cultural identity of both residents and a draw for visitors. Historic preservation continues to be a high priority for the city, with Character Zones created to ensure compatibility of new development within historic portions of the city. Nevertheless, challenges remain to ensure that the city balances historic preservation with the need to attract new investment. Significant findings relative to the City’s cultural and historic resources include:

DRAFT 3/24/16

PORTSMOUTH 2025

DUCTIO • Rising costs of housing and creative pro-

center.

duction spaces are pricing out artists and

• The City’s emergency shelter location at

other small-scale arts and crafts producers.

the high school is not an ideal use when

• Historic preservation is integral to the

school is in session.

cultural identity of Portsmouth.

• The needs of the homeless are not clearly

• Increased development in and around

understood, since no City-specific study

Downtown has impacted view corridors.

has been conducted.

• Public access to the Piscataqua River and

• The City needs a housing inspection pro-

shorelines is limited by private property

gram dedicated to inspecting older proper-

and industrial maritime uses.

ties, particularly those suspected of having lead paint.

Social Services A wide variety of health and social service organizations and networks serve the needs of the City, its residents, and the wider region. A number of hospitals and health care centers, food pantries, and supportive service providers operate within the city. While the number of seniors declined in the last decade, the large increase in the 45-64 year old cohort suggests that planning for an aging population will become a major focus of the City and public agencies in the coming decade.

Other important findings relative to social service provision include: • The Portsmouth Housing Authority has converted some of its senior living units to facilities dedicated to housing disabled persons. However, despite the conversions from senior to disabled housing, the disabled population is currently underserved.

• The city should plan for a multigenerational (not just for seniors) community center, and the coordinated development of alternative transportation elements for that

PORTSMOUTH 2025

Moving forward, the team looks forward to discussing with the City and residents issues such as: • Review Uber, Zipcar policies to encourage car free or car-light living

• Evaluate the potential for a bikeshare program in downtown (for visitors)

• Evaluate Ambassador Program (preserve police manpower for serious issues)

• Participate in a re-use plan for the Federal Building site Downtown

CONCLUSION The challenge of master planning is to tie together many strands of budgets, goals and policies and to best weave them together. To this end, the planning process must strive to be multidisciplinary and collaborative, often across departmental or even jurisdictional boundaries. The best plans find convergent goals and best leverage them to multiple stakeholder goals. One such example is revealed in the Public Undeveloped Lands Assessment.

DRAFT 3/24/16

INTRODUCTION

11

INTROD PORTSMOUTH 2025 AN INTRODUCTION

The 91 city-owned parcels cover nearly a thousand acres of land that, in many cases serves multiple uses, from wildlife habitat to stormwater mitigation and drinking water protection. Finding other compatible uses for these lands, such as passive recreation, walking and biking trails and nature programming, can positively impact many goals while simultaneously providing for a more resilient future. Better access and utilization will enrich the lives of residents and discourage inappropriate uses on those lands. The planning process should reveal as many of these potential convergences as possible, and be organized to reveal those, in order to foster interdepartmental cooperation in budgeting and implementation.

12

INTRODUCTION

DRAFT 3/24/16

PORTSMOUTH 2025

DUCTIO REVIEWED PRIOR PLANS

DATE PUBLISHED

Islington Street Corridor Improvement Action Plan North End Preliminary Vision Plan

December-09

January-15

Community Life and the Arts - Cultural Plan Market Street Extension Gateway Streetscape Improvements Summary Report Existing Conditions & Stakeholder Interviews

May-02 January-08

Economic Development - Existing Conditions Report

June-14

Housing - Existing Conditions Report

June-14

Memo - City Support of Small Business

April-15

Hazard Mitigation Plan Update

November-10

Wayfinding Analysis

April-14

Public Undeveloped Lands Assessment: Comprehensive Baseline Inventory and Natural Resource Inventory Coastal Resilience Initiative - Flood Maps Portsmouth Bicycle and Pedestrian Plan Comprehensive Recreation Needs Study Final Report Safe Routes to School Action Plan

November-10 February-13 August-14 May-10 February-10

Police Department Facility Study Draft Report

July-14

PHA 5-year Plan & Annual Report 2015 Greater Portsmouth Area Senior Center Project Report Blue Ribbon Senior Committee Report to City Council Portsmouth MP Update on Implementation Program City of Portsmouth MP

December-13 June-14 March-05

Blue Ribbon Committee on Transportation Policy - Report to City Council

PORTSMOUTH 2025

July-05

DRAFT 3/24/16

April-14

INTRODUCTION

13

INTROD PORTSMOUTH 2025 AN INTRODUCTION

Character Based Zoning Ordinance - Article 5A

August-14

Community Health Profile

July-07

Self-Assessment of Fire Department Operations

April-15

Portsmouth Housing Authority Annual Report 2014

July-05

Police Department Organizational Review Portsmouth Listens Report - Getting To and From and Around Portsmouth Portsmouth Listens - Phase I Summary Report Portsmouth Listens - Phase 2: Sustainable Transportation STUD-IES

November-11 May-13 March-03 April-14

Police Department Strategic Plan 2010-2015 Portsmouth Annual Report FY2013

FY 2013

Economic Development Action Plan 2015

June-14

Economic Update for the Period July 1 14-April 30 15 CrimeView Data reporting Key Public Safety Routes

14

INTRODUCTION

DRAFT 3/24/16

PORTSMOUTH 2025

DUCTIO PUBLIC PROCESS

KICK OFF MEETING (APRIL 15, 2015)

In April, 2015, the City hosted a public kickoff meeting to formally announce the plan and to recruit for Portsmouth Listens. The meeting included an introduction to the consultant team, a presentation of initial observations and a request for volunteers to participate in a Listening process. At the conclusion of the presentation, the team distributed surveys to meeting attendees to get a preliminary understanding of the key issues, topics, and concerns residents feel should be prioritized in the 2015 Master Plan.

The survey included the following questions: 1.

What is the single most important topic for this Master Plan update

2.

What do you want to tell NBBJ about Portsmouth

3.

List three words that best capture Portsmouth Character

4. How does you vision of Portsmouth in 2025 differ from today? How is it the same?

5.

How can we best engage you and hour neighborhoods in this process

6.

Additional ideas/comments/suggestions.

7.

The full results of the 43 returned surveys can be found in the appendix.

PORTSMOUTH LISTENS PROCESS (SPRING 2015) After a successful process in 2005, the city once again turned to Portsmouth Listens to create a community dialogue to generate input for the 2015 Master Plan review process. Over a five week period in May and June, 130 community members were assigned to eleven facilitated groups to again consider: “How can we make Portsmouth the best place to live, work and play for everyone?”

Each group met at least four times in two-hour sessions to generate its findings and recommendations for the Portsmouth Planning Board to consider in preparing Portsmouth’s new Master Plan. The goal was to generate input for two Master Plan issues: the vision statement and the priorities for action over the next ten years.

To assist them in the process, each group was asked to consider and answer the following questions: 1.

How has Portsmouth evolved over the years?

PORTSMOUTH 2025

DRAFT 3/24/16

INTRODUCTION

15

INTROD PORTSMOUTH 2025 AN INTRODUCTION

2.

What has been successful in mak-

ing Portsmouth the best place to live, work and play for everyone?

3.

What has not been successful in

making Portsmouth the best place to live, work and play for everyone?

4. What do we want Portsmouth to be like and look like in 2025?

• A diverse supply of housing for all eco-

5.

nomic levels and types from young to old;

What, if any, changes should be

made to the 2005 Master Plan Vision

single or families; abled or disabled;

Statement?

• A diverse array of jobs;

6.

• Diverse modes of transportation that is

What are the “Priorities for Action”

that will make Portsmouth the best

affordable, intermodal and regional;

place to live, work and play for every-

• Planning decisions that embraces socio-

one in 2025?

economic differences: people of all ages

In2005, the major theme coming out of the Master Plan review was “sustainability”. The Master Plan review process resulted in a “clarion call for Portsmouth’s future development to be sustainable and balanced . . . a clear preference for investing in long-term solutions.” Sustainability remains one of the top “Priorities for Action” coming out of the 2005 Master Plan review.

The 2015 Master Plan review study circles have an enhanced view of “sustainability”. The 2015 Study Circles recognize “diversity” as a key component of “sustainability”. While “supporting a diverse community” was a ‘’priority for action” in the 2005 Master Plan, the 2015 Study Circles have articulated that to “sustain” the desired quality of life in Portsmouth, Portsmouth must be more diverse in many different ways.

16

INTRODUCTION

The Study Circles variously described the need for diversity in the form of mixed-use neighborhood zoning, housing that meets the needs of all ages and incomes, and less reliance on tourism as an economic driver.

Specifically, there are calls for:

and economic status, not just older and wealthier;

• A local economy that is less tourism-driven, that creates opportunities for all types of entrepreneurship, including but not limited to peer to peer;

• Parking to meet the specific needs of different groups including workers, tourists, residents, and the disabled;

• A diverse built environment, not just replicating the past, but authentic to Portsmouth, new and old;

• A community that balances the different needs and interests of tourists and residents; and

• Planning for different parts of the city that provides equity throughout the community with as much focus on the neighborhoods as downtown.

DRAFT 3/24/16

PORTSMOUTH 2025

DUCTIO The findings and recommendations of the Study Circles create definitions of “diversity’’ in housing, transportation, job base, land use and streetscapes that these citizens believe will enhance Portsmouth as the best place to live, work and play for everyone.

NEIGHBORHOOD MEETINGS (SEPTEMBER 9 AND OCTOBER 7, 2015) Following the Portsmouth Listens process in the Spring of 2015, the city hosted three public meetings that focused on neighborhood issues. Each of the three sessions were held during the Fall of 2015.

The Neighborhood Meetings began with presentations that summarized the Existing Conditions analysis and summarized the result of the Portsmouth Listens process. Two of the three meetings were identical in content and hosted at two locations to ensure public participation from all neighborhoods. The first meeting was held at the Urban Forestry Center on September 9th and the second was held at the New Franklin School on October 7th. Each of the two meetings consisted of four exercises intended to gain as much understanding of neighborhood issues as possible. The participatory exercises used a variety of mapping and survey tools to get geo-located information from residents for use in subsequent planning.

PORTSMOUTH 2025

WALKABILITY MAPPING EXERCISE

Residents were asked to sit with their neighbors to rank their neighborhood streets and connections using the maps and pens provided to indicate the following: • Green: to indicate pleasant to walk, bike • Orange: for poor or dangerous

Similarly, residents used circles to rank intersections in their neighborhood with the same color ranking.

Residents identified Elwyn Road, Banfield Road, Middle Road, Islington Street and Peverly Street as in need of improvements for pedestrian accommodations and speed reduction as well as many intersections along State Route 1.

AUTHENTICITY EXERCISE Residents were asked to identify three places that they felt contributed to an authentic Portsmouth. On worksheet, they were asked to name these places and use three words to describe why they liked them. Conversely residents were asked to Label three places or things that you didn’t like and indicate on the worksheets what words they would use to describe these elements.

Commonly named contributors to authenticity were the downtown, established residential neighborhoods, parks and open spaces and a few specific buildings (including the new 3S Artspace). The full results can be found in the appendices.

DRAFT 3/24/16

INTRODUCTION

17

INTROD PORTSMOUTH 2025 AN INTRODUCTION

VIBRANCY EXERCISE

• Greenfield development on (difficult)

Residents were asked to identify services that were readily available in their neighborhood within walking distance and, conversely, unmet needs that were desired within walking distance of their homes.

unbuilt parcels.

Residents used the maps to identify three to five everyday uses, amenities, and services that were within a half mile radius of their homes and list those amenities and services that they would like to have within that same ½ mile radius.

In downtown area, residents were glad to be able to walk to restaurants, library, theatres, banks, all amenities of downtown are walkable for them.

In other neighborhoods residents frequently noted the absence of nearby grocery stores or pharmacy and in many cases access by foots was more of a challenge for nearby services despite proximity. The full results can be found in the appendices.

DIVERSITY EXERCISE Residents were asked to identify and respond to three illustrated strategies to increase workforce housing in Portsmouth: • Redevelopment of gateway commercial areas

• Densification with second units or parcel splits

18

INTRODUCTION

Residents were asked to mark on maps where future housing could be located in their neighborhoods or nearby.

Residents overwhelmingly supported redevelopment of existing commercial areas over greenfield development or increasing density in existing neighborhoods. Some residents suggested a value to in-law apartments as a strategy for both providing affordable housing and increasing income for residents with larger homes and fixed incomes.

CORRIDOR DEVELOPMENT MEETING (SEPTEMBER 28, 2015) A meeting was held to specifically address the design issues of the commercial corridors within the city.

The three corridors to be addressed were Route 1, Lafayette Road, Route 1 Bypass and Woodbury Avenue. The meeting was held in the Portsmouth Middle School on the evening of September 28th, 2015.

Residents were asked to participate the three participatory exercises followed by a general question and answer period.

VISUAL PREFERENCE SURVEY Residents were shown 45 images and asked to rank each image on a scale of one to five from very negative to very positive. The images were taken from local and national examples and showed a range for design elements commonly found in commercial corridors.

DRAFT 3/24/16

PORTSMOUTH 2025

DUCTIO Examples of sidewalks, crosswalks, architecture and sustainable features were shown to gauge resident’s reaction.

The result of the Visual Preference Survey were used in the Master Plan and can be found in the appendices.

the other participants. The results were used to inform recommendations to gateway zoning and can be found in the appendices.

STREET SECTION EXERCISE Residents were asked to look at three cross sections of Lafayette Road and Woodbury that measured approximately 100 feet in width. Within this right of way, residents were encouraged to “build” a roadway section that would replace the current design. Residents were given paper images of drive lanes, sidewalks, planted medians and bike lanes, which they could use to construct a new street section and to present those sections to their neighbors. The resulting sections were used to inform recommendations for the corridor areas, and can be found in the appendices.

PLACEHOLDER

DEVELOPMENT EXERCISE Residents were seated in groups and supplied with maps of the corridor areas within the city. Residents were given LEGO blocks representing development blocks in three colors representing housing, retail or commercial uses and parking. Groups for residents were encouraged to work together to redevelop existing commercial areas with a mix of development types of their choosing. The results were photographed and residents were asked to present and explain their choices to

PORTSMOUTH 2025

DRAFT 3/24/16

INTRODUCTION

19

VIBRAN AUTHEN IVERSE CONNEC ESILIEN PLANNING THEMES

VIBRANT 22

AUTHENTIC 30 DIVERSE 38 CONNECTED 46 RESILIENT 54

DRAFT 3/24/16

NT N E CT NT

PLANNING THEMES

A TRADITIONAL MASTER PLAN FOLLOWS A CLEAR FORMULA: ANALYSIS AND RECOMMENDATIONS, DESCRIBED DISCIPLINE BY DISCIPLINE, DEPARTMENT

BY DEPARTMENT. PORTSMOUTH 2025 RECOGNIZES THE COMPLEXITY OF PLANNING FOR A 21ST CENTURY COMMUNITY

BY DESCRIBING ITSELF IN TERMS OF FIVE COMMUNITY-GENERATED THEMES.

The 2005 master plan for Portsmouth identified four priorities for action: continued vitality of the downtown area; improvement of the quality of the city’s major corridors; preserving the diversity of Portsmouth’s people and economy; and sustaining the health of the natural environment within which we live, work, and play.

The team developing Portsmouth 2025 held multiple visioning sessions with City residents, and partnered with local initiatives to gather invaluable information on the preferences, hopes, and grievances of those in Portsmouth, in order to identify the new principles, or themes, for Portsmouth’s next decade of growth. The results of those community PORTSMOUTH 2025

meetings and information-gathering initiatives have informed the selection of the five Planning Themes that guide Portsmouth 2025: the city should remain Vibrant, Authentic, Diverse, Connected, and Resilient. These themes offer a more integrated approach that avoids the traditional silos, acknowledging the need for interdisciplinary collaboration in master planning of land use, in order to achieve successful outcomes.

Each of the themes is related to and interwoven with the others. For example, Diverse is discussed in reference to fostering both housing and job opportunities that will keep Portsmouth’s population diverse by age and income levels, but is also discussed in reference to ensuring an appropriate mix of small and large businesses. Both of these complementary objectives, then, will also support a Vibrant and Resilient economy.

Portsmouth 2025 recognizes and pays close attention to geographic distinctions within the city. Authentic, for instance, is a citywide principle which must be as evident in its many neighborhoods as it is in the traditional downtown.

The following pages provide context for each of the five Planning Themes, including a brief analysis of relevant data, a description of each theme and its importance to Portsmouth, and a list of specific goals for the City to pursue, organized by theme.

DRAFT 3/24/16

I. THEMES

21

VIBRANT

GH QU “A CITY THAT PROVIDES A HIGH QUALITY OF LIFE WITH AN ABUNDANCE OF OPPORTUNITIES FOR LIVING, WORK AND PLAYING”

BUNDAN

PPORT DRAFT 3/24/16

U

60%

PERCENT OF PORTSMOUTH ARTS AND CULTURAL AUDIENCES ARE LOCAL RESIDENTS. SOURCE: Americans for the Arts, 2012.

NCE

1,300

TUN

CHILDREN PARTICIPATE IN PUBLIC RECREATIONAL PROGRAMS ANNUALLY. SOURCE: Portsmouth Comprehensive Recreation Needs Assessment Study, 2010.

20,435 SF/ACRE IN URBAN CORE

THE INTENSITY OF USE IN THE CORRIDOR AREAS IS SIGNIFICANTLY LOWER THAN DOWNTOWN. SOURCE: Portsmouth Assessor’s Data.

4,266 SF/ACRE IN CORRIDOR DRAFT 3/24/16

VIBRAN THEME 1: VIBRANT

A CITY THAT PROVIDES A HIGH QUALITY OF LIFE WITH AN ABUNDANCE OF OPPORTUNITIES FOR LIVING, WORK AND PLAYING

express the feeling of being excluded from the visitor economy that they feel dominates the historic center of the city.

Neighborhood shopping districts, for instance, could better serve the majority of residents with a more balanced mix of cultural, entertainment and civic uses.

Portsmouth is New Hampshire’s only seaport city and a regional destination for arts, culture and entertainment for regional, national, and international tourists. While tourism is important to Portsmouth, accommodation, food service art and entertainment only account for 13% of all jobs. Portsmouth is also a regional jobs center, with 2.24 jobs per resident in a range of technology, professional and service sectors.

Other, more distant neighborhoods would appreciate similar local mixed-use centers within walking distance of their homes. Furthermore, residents seek greater access to a network of open spaces, connecting their neighborhoods to recreational opportunities.

For residents who do not live or work within the historic urban core and waterfront, the remainder of Portsmouth suffers from many of the disadvantages of suburban and exurban landscapes across the country: a lack of walkable mixed-use districts, a shortage of housing choices and large corridors of auto-oriented commercial development that isolates residential neighborhoods.

ACCESS & WALKABILITY While the urban core provides a walkable experience, residents living outside the downtown frequently 24

I. THEMES

VIBRANT

ARTS & CULTURE Arts and culture in Portsmouth contributed $41.4 million to the overall economy according to a 2012 report from Americans for the Arts (Arts & Economic Prosperity IV). Despite high land costs, facilities at 3S Artspace, Portsmouth Art Museum, Discover Portsmouth, and the Button Factory have thrived in the last decade without requiring significant public subsidy. Art-Speak continues to promote the arts and the Percent for Arts Ordinance continues to create important public funding. Nevertheless, the Cultural Plan identified the shortage of affordable space in Portsmouth as a significant challenge facing artists and cultural organizations. For example, the

DRAFT 3/24/16

PORTSMOUTH 2025

NT

Portsmouth Children’s Museum (now the Children’s Museum of New Hampshire) moved to Dover in 2008 after unsuccessfully searching for affordable space in Portsmouth. Ensuring that cultural facilities, particularly those that are community-based, continue to find places to work, display and perform within the city is a priority. Sufficient incentives and zoning flexibility should be in place to facilitate such support.

INDUSTRY MIX Additionally, start-up incubation (creative and entrepreneurial) is a priority for the economic development community, and could be a means of retaining manufacturing jobs and increasing business growth. Incubator spaces have emerged to house small and start-up businesses as an intermediate step between business creation and self-sufficiency. As the lines between technology, industry and artisanal production blur, finding space for start-up entrepreneurial businesses requires flexible zoning that can support new industries (such as maker spaces) that attract talented and innovative residents in an attractive, collaborative and affordable setting. An appropriate mix of Urban Core spaces - retail, office, and maker - is thus essential for the city’s economic health.

PORTSMOUTH 2025

PLACEHOLDER

DRAFT 3/24/16

VIBRANT

I. THEMES

25

VIBRAN GOAL 1.1

SUPPORT THE CONTINUED VITALITY OF DOWNTOWN USING PUBLIC INVESTMENT AND LAND USE REGULATIONS.

PRIORITY # DESCRIPTION

26

1.1.1

Support reinvestment in underutilized downtown buildings and land.

1.1.2

Enhance the quality and connectivity of downtown pedestrian facilities.

1.1.3

Promote the creation of downtown open spaces, seating areas and other outdoor amenities.

1.1.4

Create a comprehensive program for downtown solid waste management.

1.1.5

Encourage public use and enjoyment of the downtown waterfront.

I. THEMES

VIBRANT

By most measures, Portsmouth is a vibrant New England seaport town with a bustling and historic downtown. While other areas of the city deserve equal attention (see Goal 1.2) the success of Portsmouth as a whole depends upon continued attention on an attractive, safe and convenient downtown and surrounding urban core. Continued investment in the public realm are needed to maintain an attractive environment and amenities, and regulations are necessary to preserve those qualities that are valued by visitors and residents alike. Examples of metrics that the City could track include qualitative measures such as visitor experience surveys and quantitative measures such as sales volumes and visitor numbers to cultural events and facilities.

DRAFT 3/24/16

PORTSMOUTH 2025

NT GOAL 1.2

ENCOURAGE WALKABLE MIXED-USE DEVELOPMENT ALONG EXISTING COMMERCIAL CORRIDORS.

Current planning efforts in the West End envision a more walkable and vibrant mixed-use district. This type of transformation is also envisioned for Portsmouth’s other commercial corridors over time. Through rezoning and investments in infrastructure, these automobile-oriented zones can, over time, become more vibrant, pedestrian friendly and better connected to adjacent residential neighborhoods. Gateway Planned Development provisions should continue to evolve to effectively incentivize mixed-use development that can provide additional needed housing and walkable mixed-use districts throughout Portsmouth. To measure progress, the city should track the construction of new pedestrian facilities, such as sidewalks and improved street crossings, and new housing units within commercially zoned areas in the corridors.

PORTSMOUTH 2025

PRIORITY # DESCRIPTION 1.2.1

Adjust the Gateway Planned Development provisions to encourage desired growth.

1.2.2

Expand the Gateway zoning approaches to the Woodbury Avenue commercial areas.

1.2.3

Promote redevelopment along the Route 1 Bypass north of the traffic circle that is compatible with adjoining neighborhoods.

DRAFT 3/24/16

VIBRANT

I. THEMES

27

VIBRAN GOAL 1.3

SUPPORT THE ARTS AND CREATIVE BUSINESSES AS VITAL PARTS OF THE COMMUNITY AND LOCAL ECONOMY.

PRIORITY # DESCRIPTION

28

1.3.1

Provide zoning and other incentives for exhibit, rehearsal and performance spaces.

1.3.2

Encourage the development of cultural and arts venues throughout the city.

1.3.3

Support continued and expanded access to affordable production spaces for artists and artisans.

I. THEMES

VIBRANT

Portsmouth is a renowned arts center, with a variety of galleries and performing arts venues. Percent for Arts has funded numerous installations throughout the city. To continue to value arts, the city should incentivize spaces for both enjoyment of the arts and the production of art. Rehearsal and studio spaces for a variety of arts and artisanal production, will enhance the city’s vibrancy by mixing artists and art supporters in a creative environment.

To do so, given the cost of housing and real estate in Portsmouth, will require creative use of development incentives, available public facilities and generous private funding. Measures of success could be more accurate accounting of residents in creative businesses or percentage of commercial space occupied by creative industries and crafts.

DRAFT 3/24/16

PORTSMOUTH 2025

NT GOAL 1.4

IMPROVE ACCESS TO INDOOR AND OUTDOOR RECREATION FACILITIES THROUGHOUT THE CITY.

A vibrant city is also a healthy city.

A city that provides convenient and affordable recreational opportunities for its residents is correlated with improved health outcomes and a stronger social safety net. Recreational spaces also double as social spaces, making positive community interaction a part of daily life along with healthy activities. Trails, parks, and public recreation spaces frequently serve populations in the greatest need of health improvements and social inclusion. Continued investment in new facilities and improved pedestrian connections (see Goals 4.1 and 4.2) between neighborhoods are essential to a healthy and vibrant Portsmouth. Specific metrics to demonstrate progress could include tracking attendance in public recreation programs by various age and income levels.

PORTSMOUTH 2025

PRIORITY # DESCRIPTION 1.4.1

Ensure that neighborhood parks and playgrounds are regularly maintained and upgraded.

1.4.2

Create additional outdoor recreational fields where possible.

1.4.3

Develop recreational trail along North Mill Pond and other transportation and utility corridors.

1.4.4

Enhance existing recreational facilities at South Mill Pond and other locations.

1.4.5

Develop a consolidated recreation facility for residents of all ages and income levels.

1.4.6

Plan for the development of additional recreation facilities where opportunities arise.

1.4.7

Support enhancements to Prescott Park and Peirce Island.

DRAFT 3/24/16

VIBRANT

I. THEMES

29

AUTHENTIC

UNIQU ATURAL “A CITY THAT TREASURES ITS UNIQUE CHARACTER, NATURAL RESOURCES AND HISTORIC ASSETS”

HISTO DRAFT 3/24/16

5 MILES

UE L

31%

OF PORTSMOUTH’S WATERFRONT IS UNDER MUNICIPAL CONTROL. SOURCE: Portsmouth GIS Data.

21

PARCELS ALONG THE WATERFRONT ARE MUNICIPALLY OWNED.

ORIC 41

8

SOURCE: Portsmouth GIS Data.

SITES IN PORTSMOUTH ARE LISTED ON THE NATIONAL REGISTER OF HISTORIC PLACES. SITES ARE NATIONAL HISTORIC LANDMARKS. SOURCE: National Register of Historic Places.

DRAFT 3/24/16

AUTHEN THEME 2: AUTHENTIC

A CITY THAT TREASURES ITS UNIQUE CHARACTER, NATURAL RESOURCES AND HISTORIC ASSETS

Portsmouth’s historic core and waterfront are principal contributors to the unique identity of the City and are a primary draw for visitors both near and far. Historic preservation continues to be a high priority for the City and advocacy groups in the face of new development. However, other parts of the city, including its residential neighborhoods, must also feel authentic and communicate the sense of community, shared history, and experience that is unique to Portsmouth.

NEW DEVELOPMENT The City has embraced the use of historic districts and more recently character-based zoning to ensure compatibility of new development within historic areas of the city. New buildings in the downtown, such as 8-18 Congress Street, appear to have met the expectations of the preservation community for compatible redevelopment. Nevertheless, challenges remain for ensuring that the city balances historic preservation with the need to attract new investment. New forms of

32

I. THEMES

AUTHENTIC

development, such as parking structures, supermarkets or senior housing, are frequently built at a larger scale than historic precedents with buildings exceeding the limits imposed in the new Character Districts.

VIEW CORRIDORS In addition to scale, blocking views of historic landmarks has been a concern among residents as new projects have been constructed in the North End. The City should embark on a more thorough analysis to determine which views need to be preserved in future redevelopment, and a comprehensive study of sensitive view corridors could help avoid long and protracted development approvals processes over such matters in the future.

WATERFRONTS Portsmouth’s rivers, shorelines and maritime history are primary assets that have defined the city for nearly 400 years. The desire for more public access must be balanced with the goal to support maritime and water-dependent uses, many of which restrict pedestrian activity along the shoreline.

Nevertheless, where public ownership exists, the city should advance physical and visual access to its precious

DRAFT 3/24/16

PORTSMOUTH 2025

NTIC waterfronts to encourage use and enjoyment of one of Portsmouth’s most charming historic amenities.

Boating access points and “river trails” could augment land-based recreation and enhance visitor experience with active water uses. A water taxi landing downtown was identified in the prior 2005 Master Plan to encourage visitor use of the water to gain access to other points along the Piscataqua River and the Maine and New Hampshire seacoast.

Seasonal water service to Kittery, New Castle, Durham or Dover could enlarge opportunities for visitors to experience Portsmouth.

PORTSMOUTH 2025

PLACEHOLDER

DRAFT 3/24/16

AUTHENTIC

I. THEMES

33

AUTHEN GOAL 2.1

ENSURE THAT NEW DEVELOPMENT COMPLEMENTS AND ENHANCES ITS SURROUNDINGS.

PRIORITY # DESCRIPTION

34

2.1.1

Implement standards and guidelines to protect the character and longevity of buildings in individual neighborhoods.

2.1.2

Incorporate design review of new structures into the site plan review process where appropriate.

2.1.3

Update public infrastructure standards to support desired community character.

2.1.4

Ensure new development is designed to consider impacts of climate change.

I. THEMES

AUTHENTIC

Portsmouth many neighborhoods have unique and valuable character that deserves protection. Where residents wish to see change, new development should be reviewed to ensure compatibility with neighborhood character and scale. Empowering residents to establish standards and review projects is essential to an open and transparent process. Design review of new buildings is an appropriate step for a community with as much concern for character.

Likewise public investment should respect both community character as well as anticipate future impacts of climate change. Metrics to ascertain progress towards this goal could include statistics on projects that receive design review or areas of the city that have enhanced review procedures such as character districts.

DRAFT 3/24/16

PORTSMOUTH 2025

NTIC GOAL 2.2

PROTECT AND ENHANCE THE INTEGRITY OF HISTORIC LANDMARKS, CHERISHED VIEWS AND OPEN SPACES.

Portsmouth has forty one sites listed on the national register of historic places and eight that are landmarks. Preserving a protecting these resources falls on various city and state governments and private individuals and organizations.

The city of Portsmouth can help to protect historic resources by enhancing the ability of organizations to seek funding and tax benefits. The city can also increase scrutiny during site plan review process or through more comprehensive evaluation of historic places and landmarks. A comprehensive evaluation of view corridors could help to preserve the visibility of cherished landmarks and simplify the site review process of individual projects. Metrics for progress could include value of historic tax credits, grant funding or projects receiving archeological review.

PORTSMOUTH 2025

PRIORITY # DESCRIPTION 2.2.1

Identify and protect scenic road corridors and priority views.

2.2.2

Create long-term plans and programs to protect Portsmouth’s historic resources.

2.2.3

Consider becoming a Certified Local Government to offer commercial historic property owners federal tax benefits.

2.2.4

Consider archaeological review during site plan review process and public projects.

DRAFT 3/24/16

AUTHENTIC

I. THEMES

35

AUTHEN GOAL 2.3

MAINTAIN AND ESTABLISH PHYSICAL PUBLIC ACCESS TO AND ALONG THE WATERFRONT.

PRIORITY # DESCRIPTION

36

2.1.1

Require waterfront access when reviewing development proposals along waterfronts.

2.1.2

Actively protect, enhance, and acquire public waterfront access.

2.1.3

Preserve water-dependent and water-related uses.

I. THEMES

AUTHENTIC

Portsmouth is a waterfront city. The city controls 21 parcels, totaling nearly one third of the city’s 15 miles of waterfront. Some of these shorelines are restricted, but the remainder are dedicated to open space with public access. Nevertheless, public perception of waterfront access remains low: many parcels are undeveloped, or difficult the reach, and disparate access points are separated by private uses. The City should be proactive in acquiring available waterfront parcels when available, and exacting public access during site review processes for mixed-use or multi-family housing projects. The city should be vigilant in preserving water dependent uses that have access to navigable waters. Metrics for advancement of the goal could include number of access points for recreational boaters and small craft and linear shorelines that have public access improvements.

DRAFT 3/24/16

PORTSMOUTH 2025

NTIC PLACEHOLDER

PORTSMOUTH 2025

DRAFT 3/24/16

AUTHENTIC

I. THEMES

37

DIVERSE

WELCOM

ALL VARIE “A CITY THAT

WELCOMES

RESIDENTS OF ALL AGES, BACKGROUNDS & ECONOMIC LEVELS & SUPPORTS A WIDE VARIETY OF BUSINESSES”

DRAFT 3/24/16

PROFESSIONAL, SCIENTIFIC, & TECHNICAL; & HEALTH & SOCIAL SERVICES: THE TWO

M84%

INDUSTRY SECTORS EXPECTED TO EXPERIENCE THE MOST JOB GROWTH IN THE NEXT DECADE.

SOURCE: New Hampshire Economic and Labor Market Information Bureau, 2013.

E

34%

OF BUSINESSES EMPLOY 10 OR FEWER PEOPLE. SOURCE: Nancy Carmer.

OF RESIDENTS ARE HOUSING COST-BURDENED.

SOURCE: American Community Survey, 2012.

45-64

YEARS OLD: THE FASTEST GROWING DEMOGRAPHIC IN PORTSMOUTH.

SOURCE: US Census, 2010.

DRAFT 3/24/16

DIVERS THEME 3: DIVERSE

A CITY THAT WELCOMES RESIDENTS OF ALL AGES AND INCOME LEVELS AND SUPPORTS A MIX OF SMALL TO LARGE BUSINESSES

Despite concerted effort and a degree of success, the cost of housing, both rental and ownership, remains a significant burden for those who live or wish to live in Portsmouth. The range of available housing products does not necessarily match the demand, according to the most recent US Census Bureau estimates, with many residents living in homes that are larger than they need and more expensive than they can afford. Furthermore, as the cost of living in Portsmouth continues to rise, there is a need to ensure that a range of well-paying and productive employment opportunities are also available. Portsmouth’s residents feel very strongly about these issues, with “Diversity” ranked highest among priorities named by participants during the public engagement process.

Since 2005, the city has established an Affordable Housing Trust Fund to support the creation of affordable housing. Regrettably, the scarcity of land

40

I. THEMES

DIVERSE

in Portsmouth has resulted in affordable housing creation in surrounding communities, rather than Portsmouth.

The City has also amended the zoning ordinance to include Residential Density Initiative Planned Unit Development (RDI-PUD) and Gateway Planned Development options. These are intended to incentivize market rate housing production with the goal of lowering the cost of housing in the city.

Despite these efforts, new housing in Portsmouth has been primarily targeted for the luxury market beyond the reach of most households.

The Portsmouth Housing Authority continues to invest in support programs and property improvements that supply the city’s fair share of below-market affordable housing to families, seniors and people with disabilities. The financial and land ownership resources of the Housing Authority should be leveraged for future redevelopment of mixed-income and mixed-use districts adjacent to PHA sites.

Portsmouth continues to be a destination of culture and entertainment for the region. And the arts are well supported as evidenced by the emergence of downtown spaces such as 3SArtspace and Discover Portsmouth.

Less successful has been the creation

DRAFT 3/24/16

PORTSMOUTH 2025

SE

MAP #1 MAJOR LAND USE PATTERNS

Industrial

Non-SF Residential

Mixed Use

Commercial

Non-Developable

Single Family Residential Portsmouth public lands Portsmouth conservation lands

Potentially Developable

State. Federal, Institutional, or Nonprofit

0

2,500

5,000

0

0.5

1

10,000 feet 2 miles

of affordable arts production space. The West End Preliminary Vision Plan suggests an “Artisan Industrial Character District� to incentivize artist-focused housing and maker spaces.

Towns and cities in New Hampshire, at least for the time being, lack the ability to mandate inclusionary zoning, so incentives are currently the only means by which local governments can promote such development. However, the state government is considering statewide legislation that would allow second units in single family neighborhoods.

Figure I-1. A map of current

land uses in Portsmouth

LAND USE

LAND USE MIX

PORTSMOUTH 2025

PARCELS

ACRES

Residential, Single Family

4,130

1,864.1

Residential, Other

1,075

1,173.9

Mixed Use

131

40.9

Commercial

411

1,189.8

Industrial

122

689.6

Municipal

207

1,173.0

Other Public & Nonprofit

177

1,909.9

DRAFT 3/24/16

DIVERSE

I. THEMES

41

DIVERS GOAL 3.1

ADAPT HOUSING STOCK TO ACCOMMODATE CHANGING DEMOGRAPHICS.

PRIORITY # DESCRIPTION

42

3.1.1

Develop regulations for accessory dwelling units that promote affordable housing and protect neighborhood character.

3.1.2

Implement housing rehabilitation programs using CDBG and other funds to improve housing stock.

3.1.3

Expand opportunities for home-based businesses.

I. THEMES

DIVERSE

Changing demographics have created a misfit between household size and existing housing stock. Most of Portsmouth housing stock was built for families, and older homes were built for very large families. According to the last census, 31% of Portsmouth residents live alone. Conversion of existing housing stock to accommodate smaller household sizes is one way that Portsmouth can satisfy the high demand for housing. Regulations should allow for conversions that satisfy neighborhood concerns about character, parking and traffic impacts. Likewise, creative use of existing housing stock for home-based businesses would satisfy another demographic shift, that of people working in small businesses from home.

Metrics for progress toward this goal would be growth in housing units and reduction in cost burdened households, particularly among the elderly.

DRAFT 3/24/16

PORTSMOUTH 2025

SE

GOAL 3.2 ACCOMMODATE THE HOUSING NEEDS OF LOW AND MODERATE INCOME RESIDENTS.

The City can provide incentives, in the absence of inclusionary mechanisms, to reduce development requirements, or streamline approvals to encourage needed housing production. Reducing of parking requirements or increasing allowable building height, for example, could reduce the cost of housing, and allowing smaller units below current minimums can reduce the absolute rent for tenants while increasing per-squarefoot return for investors.

Other forms of assistance, either from public agencies for low income residents or from employers for workforce housing could also reduce resident costs. The Portsmouth Housing Authority is a potential partner for the city or private developers, with an ability to leverage land holdings for mixed-income residential development that will provide market rate and affordable housing together with income-restricted housing. Metrics for measuring achievement include a housing affordability rate which compares median housing price with median income or housing production by quintile to find the distribution of affordable to luxury housing production by year.

PORTSMOUTH 2025

PRIORITY # DESCRIPTION 3.2.1

Streamline the approval process for affordable housing in order to reduce development costs.

3.2.2

Promote the development of mixed-income multifamily housing in appropriate locations with incentive zoning provisions, such as reductions in parking requirements & increased maximum heights.

3.2.3

Support the activities of housing agencies in the development of affordable housing.

3.2.4

Provide incentives for low to moderate income first-time homebuyers to purchase homes in Portsmouth.

3.2.5

Encourage the creation of a diverse range of housing units, including smaller units.

3.2.6

Encourage businesses to establish employer-assisted housing programs.

3.2.7

Promote opportunities to reduce the development costs of affordable housing, such as through contributions to the Workforce Housing Trust Fund and donations of land for housing sites.

DRAFT 3/24/16

DIVERSE

I. THEMES

43

DIVERS GOAL 3.3

ENSURE THAT THE SUPPLY AND CHARACTER OF COMMERCIAL SPACE CAN ADAPT TO A CHANGING ECONOMY.

PRIORITY # DESCRIPTION

44

3.3.1

Identify flexible, low-cost locations for business startups and support their development through appropriate zoning.

3.3.2

Evaluate existing industrial areas for cost and availability of suitable "maker" and creative industry spaces.

3.3.3

Support efforts of the Pease Development Authority to manage development in the Tradeport for the greatest economic benefit.

I. THEMES

DIVERSE

Portsmouth businesses are diverse, but rising land values and lower vacancy rates have the potential to squeeze out marginal businesses that may be valuable to maintain a diverse workforce. Existing stocks of industrial and commercial real estate should be evaluated to determine if the city has sufficient and appropriate locations and built spaces for new creative and innovative businesses. Likewise, zoning definitions should be evaluated to ensure that antiquated definitions of industrial use do not preclude environmentally safe maker spaces and craft production.

Other incentives could be instituted that support small scale start-up or incubator spaces with affordable work space in the downtown and existing industrial and commercial zones. Metrics for achieving this goal include an annual survey of businesses, employees and production to get a better portrait of Portsmouth’s creative economy.

DRAFT 3/24/16

PORTSMOUTH 2025

SE

GOAL 3.4 PROMOTE MIXED-USE DEVELOPMENT FOR MORE EFFICIENT LAND USE.

The mixing of uses, such as housing with retail, has been discouraged in traditional zoning regulations. Current perceptions have changed, and there is more acceptance of adjacencies between commercial and residential uses. While many industrial uses continue to provide safety or health hazards to residences, office retail and even light industrial uses are potentially compatible. Mixed-use provides many benefits including reduced vehicle trips, shared parking opportunities and better utilized public infrastructure. Over the last decade, the city has established flexible zoning such as Gateway Planned Development, Mixed Residential Business and Character Districts to make such mixed-use districts more achievable. The city should continue to encourage mixed-use development with flexible zoning, incentives and use of public resources such as public parking resources and available public properties. Measures of success could include areas of the city that are zoned in one of the mixed land use designation, or classification as mixed-use by assessor.

PORTSMOUTH 2025

PRIORITY # DESCRIPTION

3.4.1

Encourage mixed-use redevelopment in existing commercial areas through flexible zoning techniques such as the Gateway Planned Development option.

3.4.2

Support mixed-use redevelopment of suitable Portsmouth Housing Authority properties for long-term viability.

3.4.3

Identify locations and conditions under which live/ work units can be safely and appropriately allowed.

DRAFT 3/24/16

DIVERSE

I. THEMES

45

CONNECTED

LINKS L FOR “A CITY THAT PROVIDES STRONG LINKS THROUGHOUT THE COMMUNITY, SUPPORTS ALL FORMS OF MOBILITY, & ENCOURAGES WALKING, BICYCLING & TRANSIT”

NCOURA DRAFT 3/24/16

51.1

6.8

MILES OF EXISTING SIDEWALK.

MILES OF EXISTING BIKE INFRASTRUCTURE.

SOURCE: Portsmouth GIS Data.

SOURCE: Portsmouth GIS Data.

RMS 78%

OF WORKERS LIVING IN PORTSMOUTH TRAVEL TO WORK ALONE IN A CAR SOURCE: American Community Survey, 2012.

AGES

21 MILES OF COAST ROUTES IN PORTSMOUTH OPERATE ON A 30 MINUTE FREQUENCY DURING PEAK TRAVEL TIMES

30 MIN

SOURCE: Portsmouth GIS Data, COAST.

5 .9

MILES OF ROUTE 1 & THE ROUTE 1 BYPASS COULD BECOME PEDESTRIAN & BIKE-FRIENDLY WITH NHDOT COOPERATION SOURCE: Portsmouth GIS Data.

DRAFT 3/24/16

CONNE THEME 4: CONNECTED

A CITY THAT PROVIDES STRONG LINKS THROUGHOUT THE COMMUNITY, SUPPORTS ALL FORMS OF MOBILITY, & ENCOURAGES WALKING, BICYCLING & TRANSIT

While Portsmouth remains predominantly car-dependent, some areas, such as the historic core and close-in neighborhoods provide walkable areas and a mix of land uses that encourage “car-lite� lifestyles. Since 2005, Portsmouth has made progress in supporting alternative forms of mobility.

Portsmouth has implemented Complete Streets principles through a citywide Complete Streets policy in right-of-way projects throughout the city and the City completed a Bicycle and Pedestrian Plan outlining a list of priority improvements to enhance non-motorized mobility.

While the City has already implemented several recommendations from the Bike and Pedestrian Plan, many improvements, particularly in the corridors, are still underway or expected.

Once NHDOT and the rail corridor owner resolve acquisition issues, the construction of the New Hampshire

48

I. THEMES

CONNECTED

Seacoast Greenway could potentially transform non-motorized connections to the region.

Parking remains an issue in many parts of the City. Since the 2012 Parking Supply and Demand Analysis for the downtown, the City has made a number of parking-related updates to its zoning policy to promote park-once districts (wherein visitors are encouraged to park at once site and make stops at others by foot) and shared parking. Although new public parking structures are under consideration for downtown, parking demand management continues to be a priority for the City. Outside the urban core parking demand continues to be high because access to alternative modes of transportation, such as cycling or public transit, is limited and walking is unsafe or unpleasant.

Almost all public transportation in Portsmouth is regional in nature.

The mix of COAST, Wildcat, C&J, and Greyhound provide access within Portsmouth, the Seacoast Region, and New England. The City and its partners have made efforts to improve public transit options for evening and weekend activities and special events through the implementation of a free parking shuttle. While transit access to the urban core has improved somewhat,

DRAFT 3/24/16

PORTSMOUTH 2025

ECTED access is infrequent in many parts of the city including corridor areas.

Furthermore, throughout the city, transit can be difficult to use because of limited access to information for users, such as smartphone applications that provide updated arrival information.

the City should work with the State and strongly advocate for a Complete Streets approach to road design.

The city’s working waterfront, active rail lines, and Pease International Tradeport also provide valuable regional, national, and international commercial and, in the case of Pease, passenger links. There is potential for water (ferry) and rail passenger transportation in the future, though none currently exists.

Portsmouth continues to both reap the benefits of regional connectivity and bear the burden of regional traffic along the I-95 corridor and Route 1. However, portions of the Route 1 Bypass, for example, may have excess capacity as a result of the construction of I-95, while simultaneously creating physical barriers between neighborhoods and limiting access to useful services. On southern portions of Route 1 New Hampshire DOT is proposing to widen the roadway to four lanes and is reviewing road design in the section of Route 1 that includes the rotary. In order for Portsmouth to realize transformation of commercial corridor areas to more walkable mixed use districts,

PORTSMOUTH 2025

DRAFT 3/24/16

CONNECTED

I. THEMES

49

CONNE GOAL 4.1

IN ACCORDANCE WITH THE CITY’S COMPLETE STREETS POLICY, ENSURE THAT TRANSPORTATION IMPROVEMENTS ARE DESIGNED TO CREATE CONVENIENT, SAFE & ACCESSIBLE STREETS FOR ALL USERS.

PRIORITY # DESCRIPTION

50

4.1.1

Update the City’s street standards to reflect current design best practices, including full accommodations for bicyclists and pedestrians.

4.1.2

Work with the state to improve major corridors (Lafayette Rd., Route 1 Bypass) to accommodate all users to the extent feasible.

4.1.3

Consider accommodations for all users in planning, design, construction and maintenance of all city road and bridge projects.

4.1.4

Complete the implementation of the citywide wayfinding program.

I. THEMES

CONNECTED

Recent plans, such as the Complete Streets and the Bicycle and Pedestrian Plan outline a path to more balanced mobility in Portsmouth. Implementation of those plans requires the city to budget improvements. Resurfacing and striping are the most frequent public improvements, promising quick results and low costs. More comprehensive changes include curb, crosswalk and sidewalk improvements that could integrate with sustainability goals (Goal 5.1) in reducing storm water and water quality impacts to rivers and streams.

Measurable improvements towards this goal could include commute mode mix, cars per household and mileage of bike routes and sidewalks.

DRAFT 3/24/16

PORTSMOUTH 2025

ECTED GOAL 4.2

IN ACCORDANCE WITH THE BICYCLE AND PEDESTRIAN PLAN, ENSURE THAT BIKING AND WALKING ARE SAFE, CONVENIENT AND COMFORTABLE THROUGHOUT THE CITY.

The recently completed Bicycle and Pedestrian Plan identified priority projects to enhance alternative mobility.

Adding off road trails, improving bike lanes and adding sidewalks to busy roadways are important priorities.

Likewise, working with NHDOT to improve state owned roadways will require coordination with future resurfacing and capital improvements.

Of particular interest and concern to community groups was the need for year round maintenance to improve pedestrian safety during and after snow events. Metrics for improvement should track implementation towards the recommendations in the Bicycle and Pedestrian Plan.

PORTSMOUTH 2025

PRIORITY # DESCRIPTION 4.2.1

Implement Bicycle and Pedestrian Plan priorities in the neighborhoods.

4.2.2

Work with DOT to implement Bicycle and Pedestrian plan recommendations on state highways.

4.2.3

Work with state and regional partners to convert the former Hampton branch to the off-road route of the New Hampshire Seacoast Greenway.

4.2.4

Identify and implement off-road multi-use paths where feasible.

4.2.5

Provide bicycle parking facilities throughout the downtown and in other high use areas to meet identified demand.

4.2.6

Update city ordinances to enhance safety and convenience for bicycles and pedestrians in development projects.

4.2.7

Consider year-round weather impacts to bicycle and pedestrian circulation in the design of public and private projects.

DRAFT 3/24/16

CONNECTED

I. THEMES

51

CONNE GOAL 4.3

MANAGE PUBLIC AND PRIVATE PARKING SUPPLY TO SERVE DEVELOPMENT NEEDS WITHOUT COMPROMISING COMMUNITY CHARACTER.

PRIORITY # DESCRIPTION

52

4.3.1

Maximize the utilization of and access to existing parking infrastructure

4.3.2

Complete parking demand and supply studies to determine appropriate zoning standards in various districts and neighborhoods.

4.3.3

Adjust off-street parking requirements to account for variables in public supply, neighborhood congestion, etc.

4.3.4

Develop strategies for determining parking requirements for large projects, including parking study requirements, shared parking provisions and site coverage maximums.

I. THEMES

CONNECTED

Municipal parking structures are expensive to build and maintain, and can compromise community character if not correctly screened. The Deer Street parking structure will help to offset a demonstrated parking shortage in the North End of the Downtown, but additional structures should only be built where demonstrated demand requires it. More effective use of existing parking resources, both public and private, can be the most cost effective way to supply additional demand. The city should continue to study parking demand to better determine where parking is underutilized. Improving access, wayfinding, and safety as well as real time information to customers can increase use of more remote parking, and congestion pricing can be used to encourage more turnover and encourage employees to park at more remote locations. Shared parking should be encouraged to make the best possible use of parking resources around the clock in mixed-use districts. Metrics towards the goal could be parking utilization studies that track parking usage around the clock rather than simply at peak hours.

DRAFT 3/24/16

PORTSMOUTH 2025

ECTED GOAL 4.4

SUPPORT A STRONG LOCAL AND REGIONAL TRANSIT SYSTEM.

Portsmouth commuters are primarily dependent on private vehicles. 78% of workers living in Portsmouth travel to work alone in a car. Residents in the downtown are the most likely to walk to work or to local destinations.

Downtown is well served by several regional bus lines and each of the major corridors are served by bus transit, but frequency of service remain deterrents to more widespread use, as does the dispersed nature of employment in the region. The city has no rail transport, relying on nearby Durham for regional connections. Portsmouth should continue to support better transit such as the CommuteSmart program, but also develop in ways that will further transit with increased density along transit corridors. Downtown’s parking issues may be solved with better transit management and the use of satellite parking areas for peak periods.

Metrics to gauge success toward this goal includes mode split data for work trips as well as non-work trips, and car ownership rates among residents.

Survey information may also provide insights on the potential for alternative modes for visitors to local attractions.

PORTSMOUTH 2025

PRIORITY # DESCRIPTION 4.4.1

Provide fixed route bus service to meet emerging demands and opportunities.

4.4.2

Support the activities of state and regional agencies and continue the City’s participation with the CommuteSmart transportation management association to increase alternative transportation options for commuters, including carpooling, access to public transit, telecommuting, bicycling and walking.

4.4.3

Continue the City’s participation with the CommuteSmart transportation management association to support commuting options.

4.4.4

Support the expansion of intercity bus service to better connect Portsmouth to other cities and major destinations such as Manchester Airport.

4.4.5

Support the activities of state and regional agencies to promote carpooling, including the provision of satellite parking.

DRAFT 3/24/16

CONNECTED

I. THEMES

53

RESILIENT

VALUE “A CITY THAT CONSIDERS AND VALUES THE LONG TERM HEALTH OF ITS

ONG TE NATURAL & BUILT

AL & BU ENVIRONMENT”

DRAFT 3/24/16

14%

ES

OF THE TOTAL AREA OF THE CITY IS PROTECTED PUBLIC OPEN SPACE. SOURCE: Portsmouth GIS Data.

ER55

UI

$599,729,464

ESTIMATED NEGATIVE FINANCIAL IMPACT OF 100-YEAR HIGH-LIKLIHOOD FLOODING SCENARIO. SOURCE: Coastal Resiliency Initiative Report.

%

OF PORTSMOUTH’S SOLID WASTE IS DIVERTED FROM LANDFILLS. SOURCE: City of Portsmouth Annual Report, 2013.

1,908

ACRES OF WETLANDS WITH PRIME WETLANDS DESIGNATION.

DRAFT 3/24/16

SOURCE: City-Wide Wetlands Inventory, Prime Wetland Analysis Report, 2006.

RESILIE THEME 5: RESILIENT

A CITY THAT CONSIDERS AND VALUES THE LONG TERM HEALTH OF ITS NATURAL & BUILT ENVIRONMENT

Resiliency and sustainability are two perspectives on a longer view of human habitation of our planet. Sustainability recognizes our inherent responsibility to live without adversely affecting future generations, while resiliency acknowledges that the planet is in constant flux, potentially as a result of our prior actions. Thus, planning to minimize the adverse effects expected as a consequence of climate change becomes crucial. Portsmouth residents expressed a strong desire for the city to become more proactive with both matters of resilience and environmental stewardship.

While Portsmouth has historically faced low risk from natural disasters such as hurricanes, it is a coastal community in one of the most vulnerable coastlines in the country; climate change and sea level rise pose the most significant risk to Portsmouth in the coming years.

Increased precipitation, winds, and rising tides will test the resiliency of city infrastructure and critical facilities.

56

I. THEMES

RESILIENT

Evacuation routes and critical facilities are likely to be affected by both highand low-Sea Level Rise (SLR) scenarios.

Commercial and residential areas are also vulnerable to sea level rise and the current emergency shelter at the High School is not considered an ideal location or facility.

Climate change brings uncertainty that will test the city’s aging utilities, burdening the sewage treatment plant and hard infrastructure systems. The city will need to continue to invest in “green” infrastructure to address more-extreme weather events and rising sea levels, but a truly effective approach to mitigating the effects of climate change will require private land owners to employ best practices in low impact development.

Residents have expressed a strong desire that the city take proactive steps to reduce greenhouse gas emissions and conserve other resources that will help to preserve the environment for future generations. Over the past 20 years the city has increased the amount of solid waste diverted from landfills from 0 percent to 55 percent. While the city is soliciting contractors to assist in all or part of waste management, private vendors have initiated a robust curbside

DRAFT 3/24/16

PORTSMOUTH 2025

ENT composting program to divert yet more solid waste while providing renewable products for parks and gardens.

PLACEHOLDER

PORTSMOUTH 2025

DRAFT 3/24/16

RESILIENT

I. THEMES

57

RESILIE GOAL 5.1

IMPLEMENT BEST MANAGEMENT PRACTICES AND SITE DESIGN STANDARDS TO ENSURE SUSTAINABILITY AND RESILIENCE OF PUBLIC AND PRIVATE INFRASTRUCTURE.

PRIORITY # DESCRIPTION

58

5.1.1

Ensure that stormwater management systems do not degrade water quality and habitat value.

5.1.2

Establish a stormwater enterprise fund to finance the construction, operation and maintenance of stormwater facilities.

5.1.3

Adjust policies and standards to maximize open space and limit impervious surfaces.

5.1.4

Protect reservoir watershed areas and wellhead zones of contribution through land acquisition, regulation, and other available means.

5.1.5

Ensure an adequate supply of water to meet future needs.

5.1.6

Publicize and promote best management practices for natural resource protection.

5.1.7

Incorporate climate change adaptation into capital planning for long-term infrastructure protection.

I. THEMES

RESILIENT

Portsmouth derives much of its water supply from wells located within the city. Protection of these wells from point and non-point sources is critical to the city’s future. Increased storm intensity and frequency, predicted as part of climate change, will have an impact on surface water bodies by increasing the amount of surface runoff that flows into streams and wetlands. Non-point source contamination from roadways and roofs impact water quality and increased flow intensity can lead to erosion and habitat damage. The city should continue to invest in separating storm drainage from sanitary sewage systems.

The city’s site plan review process should be used to implement best management practices (BMPs) in private development by limiting impervious surfaces and slowing storm flows to reduce combined sewer overflows. Site plan review should be used to improve long term preparedness of development, particularly in areas that are vulnerable to sea level rise. Potential metrics to achieve goal success include measuring city-wide impervious surfaces, tree cover and implementation of green streets.

DRAFT 3/24/16

PORTSMOUTH 2025

ENT GOAL 5.2

MANAGE PUBLIC OPEN SPACES FOR PASSIVE RECREATION AND ENVIRONMENTAL PRESERVATION.

Public and protected lands in Portsmouth are extensive and include city owned land, privately owned wetlands, and private and public preserves and recreational areas. Open spaces are widely spaced, frequently separated by private uses and in many cases, not managed for public access.

Much of the open space is located in the south of the city. Acquisition of additional open space should focus on creating a more connected system of open spaces that will enhance both user experience and connect to neighborhoods with fewer parks or natural amenities. Many of the city’s open spaces are poorly used due to lack of maintenance, lack of trails, or simply lack of public information about their existence. Site plan review can be used to implement public access points through private development to open spaces that are not otherwise publicly visible or easily accessed from roadways. A stewardship plan should be implemented that will maximize the care of lands identified in the Public Undeveloped Lands Assessment.

PORTSMOUTH 2025

PRIORITY # DESCRIPTION 5.2.1

Identify and prioritize undeveloped land for acquisition and preservation.

5.2.2

Pursue open space acquisitions that create corridors and connections.

5.2.3

Publicize public access to open space lands through maps and the City’s website.

5.2.4

Create and implement stewardship plans for major public open space parcels addressing resource enhancement and public access.

5.2.5

Create a passive recreation program focused on expansion and maintenance of recreational trails.

DRAFT 3/24/16

RESILIENT

I. THEMES

59

RESILIE GOAL 5.3

PROMOTE EFFECTIVE STEWARDSHIP TO ENHANCE THE CITY’S NATURAL RESOURCES.

PRIORITY # DESCRIPTION

60

5.3.1

Implement watershed restoration measures to improve water quality and habitat values.

5.3.2

Protect and care of existing trees, native vegetation and woodlands, and identify areas for new plantings.

5.3.3

Evaluate health of wetlands and implement restoration measures where necessary.

5.3.4

Evaluate resiliency of salt marsh wetlands to sea level rise and implement protective measures where necessary.

5.3.5

Track expansion of invasive species, and respond and adapt to threats as necessary.

I. THEMES

RESILIENT

Much of Portsmouth open spaces are salt marsh or fresh water wetlands.

These environments are particularly vulnerable to water quality degradation and at risk with climate change. Caring for a healthy habitat should be balanced with public access, keeping in mind that many visitors are attracted by wildlife as well as recreational pursuits. Upland areas also contribute to the city’s green infrastructure and help to reduce heat islands and provide habitat for many species. Preservation of existing tree cover and a variety of woodland habitats should be monitored to ensure diversity and protect against aggressive invasive species. Metrics for measuring success include preservation of prime wetlands, heritage trees and diversity of animal and plant species or endangered native habitats.

DRAFT 3/24/16

PORTSMOUTH 2025

ENT GOAL 5.4

PROMOTE EFFICIENT USE AND MANAGEMENT OF RESOURCES.

Community input emphasized the importance of Portsmouth to be a model for sustainability. Reduction of waste, increased recycling of resources and increased production of renewable energy were high on the list of desired outcomes. The city can advance these goals with recycling and re-use of construction materials at a recycling center, incentivize “green buildings� in private and public projects, and lead by example with low emission city vehicles. While the city does not produce electricity, various measures to encourage energy production at small scale should be advanced or barriers reduced. Metrics for advancing this goal could include waste diversion rates, projects achieving LEED or equivalent certification, and city fleet mileage.

PORTSMOUTH 2025

PRIORITY # DESCRIPTION 5.4.1

Develop an expanded recycling center to improve operational efficiencies and reduce the cost of municipal solid waster management.

5.4.2

Increase landfill diversion rates for government, commercial and residential users.

5.4.3

Strengthen land use regulations and provide incentives for green buildings and sustainable low impact development.

5.4.4

Promote the use of low-emission vehicles within the City.

DRAFT 3/24/16

RESILIENT

I. THEMES

61

RESILIE GOAL 5.5

INCORPORATE CLIMATE CHANGE IMPACTS AND ADAPTION INTO ALL DEVELOPMENT REVIEW AND PLANNING EFFORTS.

PRIORITY # DESCRIPTION

62

5.1.1

Implement watershed restoration measures to improve water quality and habitat values.

5.1.2

Protect and care of existing trees, native vegetation and woodlands, and identify areas for new plantings.

5.1.3

Evaluate health of wetlands and implement restoration measures where necessary.

5.1.4

Evaluate resiliency of salt marsh wetlands to sea level rise and implement protective measures where necessary.

5.1.5

Track expansion of invasive species, and respond and adapt to threats as necessary.

I. THEMES

RESILIENT

As a coastal city on an estuary, Portsmouth is increasingly vulnerable to storm surges and rising tides. In addition to infrastructure, homes and businesses (covered in Goal 5.1) natural areas such as fresh water wetlands will be highly impacted by rising tides.

Higher temperatures and more intense storm events (even greater snow depths) will impact natural systems including new or previously rare invasive species or pests change. Active evaluation of the city’s natural habitats will give advance warning to climate changes.

Some changes may need to be managed, while others might be resisted with more active restoration efforts. Tracking of invasive species and the health of fragile environments will be important measures to determine the rate of change and the impacts to both human and natural systems. Metrics to use in evaluation of climate change could include annual counts of wildlife, the levels of vernal pools and the health of wetlands at the tidal margins. The health and extent of city’s tree canopy is one important measure of resistance to heat island effect.

DRAFT 3/24/16

PORTSMOUTH 2025

ENT PLACEHOLDER

PORTSMOUTH 2025

DRAFT 3/24/16

RESILIENT

I. THEMES

63

WNTOW CORRID NEIGHB EST EN ARKS & FOCUS AREAS

URBAN CORE 68

CORRIDORS 80 URBAN NEIGHBORHOODS 92

SUBURBAN NEIGHBORHOODS 102 PARKS & OPEN SPACE 114

DRAFT 3/24/16

WN DORS BO ND FOCUS AREAS

WITHOUT A CLEAR SENSE OF HOW THE RECOMMENDATIONS OF A MASTER PLAN WILL MATERIALIZE IN THE WORLD, THE PLAN IS LIMITED IN VALUE TO BOTH RESIDENTS AND CITY GOVERNMENT

The broad Themes and Goals developed in the prior section of this Portsmouth 2025 document are intended to apply city-wide. This section focuses more specific attention on some of Portsmouth’s most treasured places and landscapes or those in need of transformation. Five Focus Areas have been chosen to spotlight some of Portsmouth’s most valued resources such as its neighborhoods, natural areas and the downtown; others have been chosen as areas of potential transformation over the next decade, such as the West End and the commercial corridors.

Each of these Focus Areas are intended to illustrate how the broad Themes and Goals and specific Priority Actions will apply. Readers can approach this section as an independent document or as part of the larger Portsmouth 2025 plan.

Each Focus Area description begins with applicable comments from participants in the public engagement process, the existing conditions analysis and results of the public engagement working sessions conducted in the fall of 2015.

PORTSMOUTH 2025

The resulting visions are intended less as definitive plans and more as examples of how the recommendations contained in Portsmouth 2025 can and will shape the future of Portsmouth.

These Focus Areas exemplify many of the planning, design, and development challenges and opportunities facing Portsmouth in 2016. Considering these Focus Areas as test cases provides the chance to better understand how policy and programming decisions can impact the built and natural environments over time.

The five types of Focus Area were selected based on a qualitative analysis of both existing conditions and potential development. Urban Core, Corridors, Urban Neighborhoods, Suburban Neighborhoods, and Parks & Open Space, though not perfectly reflective of the nuanced character of each part of Portsmouth nonetheless represent many common conditions of development, land use, environment, and transportation. Therefore, zoning, current land use according to City Assessor’s data, and aerial imagery all informed the categorization of land within Portsmouth into the five Focus Areas named above. The following two pages describe current zoning in Portsmouth as well as the Focus Areas themselves via maps that appear frequently throughout this section since these features are so important to the classification of land into Focus Areas.

DRAFT 3/24/16

II. FOCUS AREAS

65

FOCUS AREAS AN INTRODUCTION

The five Focus Areas are shown in the map at left. Note that not all land within Portsmouth has been characterized as one of these Focus Areas: land that does not fall within the City’s jurisdiction, such as state-owned land or state-chartered authority-owned is beyond the direct control of the City and thus not necessarily subject to the recommendations laid out in Portsmouth 2025.

URBAN CORE CORRIDORS URBAN NEIGHBORHOODS SUBURBAN NEIGHBORHOODS PARKS & OPEN SPACE

66

II. FOCUS AREAS

DRAFT 3/24/16

PORTSMOUTH 2025

MAP 2-1 MAJOR LAND USE PATTERNS

Industrial

City of Portsmouth

Commercial

Non-Developable

Mixed Use

Portsmouth Conservation Lands State, Federal, Institutional, or Nonprofit

Potentially Developable

Non-SF Residential

0

2,500

5,000

Single Family Residential

0

0.5

1

10,000 feet 2 miles

The land uses illustrated in the map at right play a significant role in determining the characterization of the Focus Areas, as well as in the analysis of existing conditions throughout the City. This map appears many times throughout this section, each time informing an understanding of what is happening currently in the Focus Areas and which recommendations apply to those Focus Areas.

INDUSTRIAL COMMERCIAL MIXED USE NON-SINGLE -FAMILY RESIDENTIAL SINGLE-FAMILY RESIDENTIAL CITY OF PORTSMOUTH NON-DEVELOPABLE POTENTIALLY DEVELOPABLE PORTSMOUTH CONSERVATION LANDS STATE, FEDERAL, INSTITUTIONAL, OR NONPROFIT

N

PORTSMOUTH 2025

DRAFT 3/24/16

II. FOCUS AREAS

67

URBAN URBAN CORE

THE URBAN CORE WILL CONTINUE TO BE PORTSMOUTH’S PRIMARY DESTINATION FOR DINING AND CULTURE SO NEW DEVELOPMENT SHOULD COMPLEMENT AND BE COMPATIBLE WITH THE CITY’S HISTORIC FABRIC AND SCALE.

on

and

Urban Core areas are those in Portsmouth with traditionally denser and mixed land use patterns. These areas include much of the land currently regulated by Character Districts the Zoning Map, and there is significant overlap with the Downtown Historical District as well. The traditional Downtown the West and North Ends are included in the Urban Core areas.

EXISTING CONDITIONS ANALYSIS: KEY FINDINGS Downtown Portsmouth is defined by dense and historic commercial and mixed-use districts with a wide range of commercial and residential uses and ages. As the downtown experiences increased development pressure, the North End has seen remarkable redevelopment while the West End expects to be the next neighborhood to feel development pressure. Fortunately

68

II. FOCUS AREAS

URBAN CORE

the city has ensured development safeguards for West and North End areas with either historic district designation or more recent Character Zoning districts. These regulations, while sometimes contentious, ensure a high level of oversight on change guided by a community based planning process.

The Urban Core including West and North Ends has seen the largest number of new residential units in Portsmouth in the last ten years, nearly xxx units over the last 5 years. Regrettably for many advocates of affordable housing, few of the new units are within the reach of lower or middle income residents. One benefit of the transformation of the North End will be the first downtown supermarket in Portsmouth.

New Development, while no larger in height than some buildings in the downtown, is more monolithic in scale, leading to concerns about the character of the downtown and the visibility of historic landmarks. At the same time, some existing historic resources in the downtown are considered at-risk due to poor maintenance and unsympathetic additions or alterations that have occurred in the past.

Access and availability of parking continues to be a concern for businesses. The city has recently supported funding for a new parking structure on Deer Street that if built, will significantly expand the number of

DRAFT 3/24/16

PORTSMOUTH 2025

N CORE PUBLIC INPUT

“Preservation and expansion of open spaces both Downtown and throughout the City. Blend of old and new architecture – preserve, but not mimic old construction.”

“Repurpose Federal Building in a thoughtful, democratic way (e.g. through juried architectural competition).“

Industrial

City of Portsmouth

Commercial

Non-Developable

Mixed Use

Potentially Developable

“Walkway along the waterfront and more view Portsmouth Conservation Lands access in this charming town of ours. We would like this thought to be kept in mind as State, Federal, development continues to grow in the area and Institutional, or Nonprofit we hope not to lose the gorgeous views that have

Non-SF Residential

0

2,500

5,000

Single Family Residential

0

0.5

1

Figure II-3. Land Use patterns in the Urban Core areas of Portsmouth indicate a healthy mix of commerical and residential uses, as well as public and non-profit.

PORTSMOUTH 2025

attracted so many to our beautiful New England 10,000 feet town.”

2 miles “Preserve historic character, include coherent and historic designs that keep with Portsmouth’s unique character, keep water views and working waterfront and enforce building heights. Prevent the use of digital billboards within the city.”

Figure II-4. Much of the Urban Core areas’ character is

DRAFT 3/24/16

regulated by the Historic District designation.

URBAN CORE

II. FOCUS AREAS

69

URBAN publicly accessible parking spaces in the downtown and the Islington Corridor.

The existing downtown parking garages reach capacity during peak hours but have availability during non-peak hours, which suggests that better study of shared parking management might take advantage of unused parking resources in a mixed-use downtown.

PUBLIC ENGAGEMENT Two recent planning studies have informed extension of Character Zoning into the West End to ensure compatible mixed-use development in the expanding Urban Core along Islington Street.

HISTORIC DOWNTOWN The existing historic parts of downtown will continue to play a central role in the image and attraction of Portsmouth.

Preservation of public spaces such as Market Square and the scale of Bow Street will all be essential to the economic vitality of Portsmouth’s tourist economy. But as the economic drivers for residential and office uses increase in Portsmouth, downtown will continue to be pressured to find additional space. While it is hoped that the larger Urban Core will receive much of the development pressure, the downtown could still see increased densities in infill development, adaptive reuse and in some cases, redevelopment, such as the McIntyre Federal Building site.

70

II. FOCUS AREAS

URBAN CORE

Preservation of downtown’s historic character is protected by historic District Commission Rules and Procedures and other areas are covered by Character Zoning that places importance on the visual appropriateness of additions and alterations. Popovers on Market Square is considered an example of context sensitive new construction in the historic core. More contemporary architectural expressions may be more appropriate in the West and North End expansion areas of the Urban Core. Nevertheless, important access and views to the harbor and key views of iconic features remain a concern for many residents and historic preservation advocates.

Past development approvals have addressed view corridors in an ad hoc manner as part of design review, whereas a more methodical study of key view corridors would serve as a more rational process to guide future development in the downtown. In addition to view corridors, pedestrian connections to the Piscataqua River should be preserved and enhanced including a potential for a ferry landing with service to downtown destinations from upriver or along the seacoast.

North End redevelopment will include additional open spaces along the North Mill Pond.

Currently, downtown Portsmouth is the area of the city best served by public transportation. The High Hanover

DRAFT 3/24/16

PORTSMOUTH 2025

N CORE parking Garage and Intermodal Transit Center connects to the major corridors and nearby communities and regional transportation hubs. The downtown is the least car dependent area of the city with less than 50% of employed adults driving to their employment. Yet parking ratios for downtown residential units remain high by most urban standards. Because the cost of parking drives housing costs so substantially, a review of parking regulations should be undertaken.

While downtown is highly walkable with a Walkscore of greater than 90 (walkscore.com), access from downtown to neighborhood schools and recreational destinations remains limited, especially for cyclists or persons with disabilities. Priority should be given to connect the downtown to adjacent neighborhoods and additional facilities for cyclists in the downtown as called for in the Portsmouth Bike and Pedestrian Plan.

The historic downtown contains the largest share of the city’s cultural venues, creating a cluster of regional destinations for visitors. As the Urban Core expands, additional cultural venues will migrate and expand to the West End and North end areas. The emerging urban core will provide more affordable arts production and exhibition spaces but downtown will continue to host top tier performance and exhibit space. To support Portsmouth as

PORTSMOUTH 2025

DRAFT

Figures II-4 & II-5. Conceptualization of the West End, from the

West End Preliminary Vision Plan, which imagines an expansion of dense urban areas beyond the traditional Downtown (Town Planning & Urban Design Collaborative, 2013).

DRAFT

DRAFT 3/24/16

URBAN CORE

II. FOCUS AREAS

71

URBAN a premier cultural destination, the city should consider a more robust management organization to ensure safe and clean downtown streets, parking areas, sidewalks and parks.

One method for reducing the cost of policing a downtown is the creation of an ambassador program that combines welcoming personnel with added eyes on the street to monitor the quality of public facilities.

Historic downtown Portsmouth was built on high ground with good river access, though there are areas in the Urban Core that are susceptible to climate change and sea level rise.

Low lying areas around the North Mill Pond and South Street will experience increasing impacts of sea level rise.

These areas should be targeted with funding to protect and raise vulnerable utilities and incentives for private landowners to elevate habitable levels and other critical systems to reduce the impact and severity of storm damage.

Changes to zoning and building codes should reflect the need for these critical improvements within the context of historic neighborhoods.

NORTH END VISION The North End is envisioned over the long term to grow as a complementary extension of Portsmouth’s downtown.

Unlike many other areas of the City, very little historical context remains.

This fact, coupled with several larger

72

II. FOCUS AREAS

URBAN CORE

vacant parcels, makes this district ripe for redevelopment opportunities close to downtown.

The Plan incorporates an extensive network of parks, plazas, paths, trails and open space including a waterfront trail network along the periphery of the North Mill Pond. With several landscaped fingers, this network is designed to pull the waterfront back into the North End. The North End Preliminary Vision Plan, assembled by Town Planning & Urban Design Collaborative in 2014, produced a massing strategy that includes stepping down building heights and densities towards the waterfront and existing historic structures. A mixture of contemporary building design, styles and materials will help to define the North End as a unique entity while complementing and contrasting with the historic character of the larger downtown.

Land uses in the North End will include a variety of residential, office and commercial spaces. The North End Preliminary Vision Plan anticipates a range of mixed-use building types from smaller row houses and live-work units to mid-rise buildings. Ground floor uses will be commercial in order to activate streetscapes and to keep residences out of potential flood zones. Parking will be located in the rear of lots, in subterranean garages or in wrapped parking structures to be concealed from public view.

DRAFT 3/24/16

PORTSMOUTH 2025

N CORE New open spaces with attractive furniture encourage users to engage with the public realm and make for more active street life.

Public waterfront access is preserved and enchance, creating a stronger connection with Portsmouth’s marine heritage.

1.1.3

2.3.1

3.3.2

Mixed-income multifamily housing, a result of zoning incentives such as reductions in parking requirements, helps keep housing affordable and accessible to jobs and amenities 3.2.2

2.1.3

Updated public infrastructure standards help create a cohesive character along the street in Urban Core.

Former industrial land deemed suitable for conversion into “maker” spaces after a city-wide evaluation of industrial parcels.

DRAFT

PORTSMOUTH 2025

DRAFT 3/24/16

II. FOCUS AREAS

73

URBAN The Vision Plan anticipates a harmonious integration of various modes of transportation including pedestrian, bicycle, vehicular and transit connections in the form of bus and future passenger rail lines. All thoroughfares are designed to be pedestrian-friendly and incorporate multi-modal design features including generous sidewalks and bike lanes where possible.

WEST END VISION The West End: Islington Street Corridor Preliminary Vision Plan (West End Vision Plan), also completed in 2014, envisions the creation of several new civic spaces designed to anchor the neighborhoods and provide places for recreation and gathering. A series of pocket parks, greens and plazas throughout the West End will ensure that residents and visitors are never more than a short walk from a well-designed civic space. Throughout the Plan, opportunities will be sought to incorporate street trees, particularly when whole blocks or streetscapes are redeveloped.

The design strategy for the (West End Vision Plan) is based on the juxtaposition of existing historic homes, mixed use and industrial buildings and new, more contemporary buildings and additions. The intention is for these neighborhoods to develop their own character and styles, independent of downtown Portsmouth. In order to

74

II. FOCUS AREAS

URBAN CORE

achieve a higher density of uses and buildings, structured parking will be required.

Land uses in the West End will include a variety of residential, office, civic and commercial spaces, including “maker” spaces and artist’s workshops. While a full range of housing opportunities should be provided for residents of all income levels, some emphasis should be placed on keeping existing housing affordable and creating additional workforce housing units. Ground floor uses in most areas along the corridor will be commercial in order to activate streetscapes and keep residences out of potential flood zones. Parking will be located on street, in the rear yards, in underground garages, or in lined parking structures concealed from public view.

The Plan provides for a better connected street network and integration of various modes of transportation including pedestrian, bicycle and motorist, as well as public transit. The plan includes a potential hub for future connections to downtown Portsmouth and the surrounding region by way of a bus or an on-street trolley line. All thoroughfares are designed to be pedestrian-friendly and incorporate multi-modal design features including generous sidewalks and bike lanes where possible.

DRAFT 3/24/16

PORTSMOUTH 2025

N CORE Reinvestment in underutilized buildings in the Urban Core creates more-productive spaces while preserving the City’s industrial and merchant past.

1.1.1

5.4.3

Publicly- and privately-funded bicycle infrastructure, such as bike racks and tool kiosks encourage visitors and residents to use a more active form transportation.

Stronger land use regulations incentivize green building techniques and low-impact development schemes, leading to development that is more sustainable and resilient.

4.2.5

3.2.5

City support of smaller housing units such as micro-units helps lower the cost of housing for individuals while adding density to the Urban Core, supporting a wider range of services and amenities.

DRAFT

PORTSMOUTH 2025

DRAFT 3/24/16

II. FOCUS AREAS

75

URBAN CORE AREA VISION The Urban Core will include both the historic center of the City and expand to denser mixed-use districts such as a West End and the North End. This larger sense of an Urban Core should be welcoming to residents as much as visitors, with a wide range of commercial and cultural attractions and a range of dense infill housing that will house people of various incomes and tenure choices.

Rentals, condominiums and affordable housing will be accommodated in existing and new multi-family buildings that will contribute to the vitality of the Urban Core. Unused or underutilized sites in the downtown, such as the Federal Building or along Islington Street, will be redeveloped (or renovated) with a mix of commercial and residential uses that complement its historic surroundings with the highest quality of design. The larger Urban Core will be accessible to neighborhoods with a greater emphasis on transit, cycling and walking.

SAMPLE

DRAFT 3/24/16

SAMPLE

DRAFT 3/24/16

URBAN URBAN CORE PRIORITY ACTIONS

AUTHENTIC

VIBRANT

PRIORITY # DESCRIPTION

78

II. FOCUS AREAS

1.1.1

Support reinvestment in underutilized downtown buildings and land.

1.1.2

Enhance the quality and connectivity of downtown pedestrian facilities.

1.1.3

Promote the creation of downtown open spaces, seating areas and other outdoor amenities.

1.1.4

Create a comprehensive program for downtown solid waste management.

1.1.5

Encourage public use and enjoyment of the downtown waterfront.

1.3.1

Provide zoning and other incentives for exhibit, rehearsal and performance spaces.

1.3.3

Support continued and expanded access to affordable production spaces for artists and artisans.

2.1.2

Incorporate design review of new structures into the site plan review process where appropriate.

2.1.3

Update public infrastructure standards to support desired community character.

2.1.4

Ensure new development is designed to consider impacts of climate change.

2.2.1

Identify and protect scenic road corridors and priority views.

2.2.2

Seek grant funding to protect Portsmouth’s historic resources.

2.2.4

Consider archaeological review during site plan review process and public projects.

DRAFT 3/24/16

PORTSMOUTH 2025

N CORE URBAN CORE PRIORITY ACTIONS

RESILIENT

CONNECTED

DIVERSE

PRIORITY # DESCRIPTION

PORTSMOUTH 2025

2.3.1

Require waterfront access when reviewing development proposals along waterfronts.

2.3.2

Actively protect, enhance, and acquire public waterfront access.

2.3.3

Preserve water-dependent and water-related uses.

3.2.2

Promote the development of mixed-income multifamily housing in appropriate locations with incentive zoning provisions, such as reductions in parking requirements and increased maximum heights.

3.2.5

Encourage the creation of smaller housing units, such as micro-units.

3.3.2

Evaluate existing industrial areas for cost and availability of suitable “maker� and creative industry spaces.

4.1.4

Implement the citywide wayfinding program.

4.2.5

Provide bicycle parking facilities throughout the downtown and in other high use areas to meet identified demand.

4.3.1

Maximize the utilization of and access to existing parking infrastructure

4.3.4

Develop strategies for determining parking requirements for large projects, including parking study requirements, shared parking provisions and site coverage maximums.

4.4.4

Support the expansion of intercity bus service to better connect Portsmouth to other cities and major destinations such as Manchester Airport.

5.4.3

Strengthen land use regulations and provide incentives for green buildings and sustainable low impact development.

DRAFT 3/24/16

II. FOCUS AREAS

79

CORRID CORRIDORS

PORTSMOUTH’S BUSY RETAIL CORRIDORS PRESENT A CLEAR OPPORTUNITY FOR POSITIVE TRANSFORMATION AND TO CREATE ADDITIONAL CENTERS OF ACTIVITY OUTSIDE OF DOWNTOWN

Existing corridors provide needed retail employment, but Portsmouth is in short supply of office space for smaller businesses and startups with very little available space in the downtown. Very little of the current commercial corridors areas have office spaces suitable for this growing area of the economy. Small and start-up companies are searching for walkable and socially vital spaces for new employees.

Portsmouth’s Corridor areas are currently dominated by commercial and retail uses. The Corridors themselves are major primary local routes into Downtown, and as such are many visitors first experience in Portsmouth. The wide, fast-moving lanes of traffic make anything but driving an uncomfortable experience, and large setbacks in Gateway, General Business, and Industrial zoning districts have pushed uses away from public rights of way.

Less than 1% of land in Portsmouth is available for new development according to the City Assessor, and single family residential areas represent 21.3% of the city’s land area. Industrial areas, at least for the time being, are being reserved until the need for industrial-zoned land in Portsmouth is better understood. Future locations for additional housing are limited except in commercial zones such as the Corridors.

Density of use in the Corridors is significantly lower than the urban core, despite the high percentage of commercial use, due to high parking demands and surface parking.

EXISTING CONDITIONS ANALYSIS: KEY FINDINGS The corridors along Lafayette Road, Route 1 and its Bypass, and Woodbury Avenue represent 37.8% of Portsmouth’s land area and 81.7% of the City’s commercially zoned land area. Yet these areas account for less than 23% of property value for for-profit landon the the City’s tax rolls as of 2014.

80

II. FOCUS AREAS

CORRIDORS

Transformation of the corridors can provide a range of benefits that address the Master Plan goals: • Improved walkability and connectivity between neighborhoods (Connected)

• opportunities of affordable housing (Diverse)

• Increased density along transit corridors (Vibrant)

DRAFT 3/24/16

PORTSMOUTH 2025

DORS PUBLIC INPUT

“Make other areas as special as Downtown multiple destinations within the City. Support unique neighborhoods.”

“Continue to implement plans related to a more walkable, bikeable city, such as the comprehensive Portsmouth Bicycle and Pedestrian Plan, across the city, especially the Market St. Extension.”

“Different areas with stores and venues that are connected and parkable.”

“Expanded neighborhood development with meaningful interconnectedness along corridors and gateways. Neighborhoods should include some services, places to gather, to eat, to socialize and places for special events.”

Single Family Residential

area withing municipal jurisdiction.

0

2,500

5,000

0

0.5

1

10,000 feet 2 miles

MAP 2-2 ZONING DISTRICTS

Character Districts

LEGEND

Portsmouth Industrial City of Portsmouth MAP 2-1 Conservation Lands Commercial Non-Developable State, Federal, Institutional, MAJOR FigureLAND II-5. USE Land use in the Corridor areas Potentiallytends Developable to be or Nonprofit Mixed Use Non-SF Residential commercial, and in fact encompasses most of the commerical PATTERNS

Residential

Airport

Business

CD4

SRA

ABC

CBA

CD4-L

SRB

AI

CBB

CD5

GRA

AIR

GW

M

GRB

PI

GB

Civic

GRC

Industrial I OR WI

Conservation

B

Mixed Residential

Figure II-6. Zoning in the Corridor areas is predominantly

0

2,500

5,000

0

0.5

1

10,000 feet

GA/MH

MRO

R

MRB

M

WB

NRP

2 miles

Gateway, General Business, or Industrial

Source: GRANIT, City of Portsmouth GIS, City Assessor Data

WI

MM M GRB

GA/MH

NEWINGTON

SRA

OR

MRB MNRP

GB

GRB M M

M

ABC

SRB

GA/MH

M MRBSRB M

M

MM GB

MM

NRP WI

OR

M

GRA SRB

B

M M M

PI AI

GRA M GB GRAM AIR M

M M

M

SRB

M M

M

R

GA/MH M M

NRP

GA/MH

SRA

R

NRP

M

SRA

I

SRA M

SRA

OR MRB

WI

M SRB

SRA

M

I M

MRO NRP

NRP

M SRA

GA/MH M

MRB M MRO

NRP M GA/MH

M R

N

SRB

NRP

N

R

MRB

M M RYE

M

M M M

M

M

M MRO

M

CBB

M

MRO M

WB GRB

M

WB

M

SRA

MRB

NRP

CBB

M R

GA/MH

CBA M

SRA

MRB M MRB

R

M

GW

SRB

M

R

NRP

M

R

M

MRO

M

NRP

R M

SRA

SRB

MRO MRB WB M

MRB

M R

WB

R

I SRB

GREENLAND

SRA

SRA

NRP

R

R

SRB

GW

NRP

SRA

I

SRA SRA

NRP GA/MH

M

NRP

SRA

NRP

SRB

M

M

M

R R

SRA

M

GA/MH

M M

NEW CASTLE SRA

M M

GRA

I M

M

SRA

M WB GRBM

B

OR

M

SRB

WB

MGRB WB

M

M

M

M

M MM M M MRO

SRB

M M M

M

M

MROM M CBA CBB M M M M NRP MRB M MMRO M M MRB CBB M MRO OR M MRB M M GRC MRO

M I

SRB

M

NRP

KITTERY WI

I

M

M GRB

GRC MRO

WB M SRB

M

PORTSMOUTH 2025

DRAFT 3/24/16

CORRIDORS

II. FOCUS AREAS

81

CORRID • Sustainable development practices to re-

duce environmental impacts of large paved areas (Resilient)

PUBLIC ENGAGEMENT

Three public workshops were held in the fall of 2015 at neighborhood locations.

All workshops addressed the impacts of the corridors on neighborhood livability but one of those meetings was designed to gain public input on corridor-specific issues. Specific issues addressed were: • Existing and desired land uses within the corridor

• Street and sidewalk widths, traffic lanes, landscape features and building setbacks

Positive open spaces should be included in future corridor development

DEVELOPER INPUT Several downtown developers were invited to comment on redevelopment challenges and opportunities in the commercial corridors in Portsmouth.

Developer comments: • There is plenty of developable areas nearer downtown, such as the West End for near term redevelopment opportunities

• Participants contributed both written and

• The corridors will take a while to become

graphic feedback in the form of a visual

attractive enough for housing development

preference survey, street section exercise

(despite current projects)

and a LEGO-based land use and massing

• The City could help by painting a picture of the future and investing to attract devel-

PUBLIC ENGAGEMENT CONCLUSIONS

oper interest

The corridor has valuable businesses near neighborhoods but they are hard to reach by walking

Portsmouth but structured parking is not

Additional sidewalks and bike facilities should be accommodated in future corridor roadway designs Future development could be closer to the roadway but would need sufficient landscape setbacks to overcome traffic noise

II. FOCUS AREAS

Residential uses may wish to be located further from the major roadways

• Redevelopment massing, use and density

exercise.

82

A mix housing and commercial uses would be desirable

CORRIDORS

• Parking requirements are still high in yet market supportable in the corridors

• Better streets and more frequent transit would be needed to attract residential development in the corridors and reduce parking needs

High end luxury development is more attractive because the margins are greater to absorb unexpected requirements, costs and delays in the approval process.

DRAFT 3/24/16

PORTSMOUTH 2025

DORS

Figure 1. Possible right-of-way reconfigurations along three

CORRIDOR ROADWAY STANDARDS

WOODBURY AVE 80’

Portsmouth’s main gateway boulevards such as Lafayette and Woodbury are high volume and automobile oriented.

Public engagement in this study and in prior mobility planning efforts suggest widespread support for multimodal roadways that support pedestrian and cycling users as well as autos. In the community workshops conducted during this masterplanning effort, residents almost universally advocated for separated or buffered bike accommodations within the corridors as well as ample and protected pedestrian sidewalks.

While the number of vehicular lanes varied, most residents acknowledged the need for four to six lanes of traffic (including turn lanes) in most of the commercial corridor roadway sections.

Despite this, the large rights of ways in most of the corridors areas (approximately 100 feet) allow nearly all of the requested multiple modes of travel and snow storage. Some participants included exclusive bus lanes to support transit ridership while others showed areas for landscape medians and traffic dividers within the right of way.

In numerous examples shown during the visual preference survey, participants responded positively to increased landscape features within the roadways. But they also responded positively to more buildings closer to the

PORTSMOUTH 2025

Corridor roads

DRAFT

LAFAYETTE RD

100’

DRAFT ROUTE 1 BYPASS 77’

DRAFT

DRAFT 3/24/16

CORRIDORS

II. FOCUS AREAS

83

CORRID roadway to support a more active street edge. Most participants also responded positively to heights along the roadways of up to 4 stories before support waned for taller structures.

NOTE: Corridor roadways such as Lafayette (Route 1) and the Route 1 Bypass are state owned and maintained.

Woodbury Ave is City owned and maintained. For the purposes of this plan, proposed design guidelines will be assumed to be the same, despite the fact that state and City standards may differ.

SPECIFIC SITE STUDIES Design studies were conducted on diverse commercial sites within the corridors to illustrate the redevelopment potential of for mixed use. Several of these sites were included in the community workshops where residents constructed redevelopment scenarios using LEGO blocks to represent commercial and residential land uses.

Participants universally constructed mixed-use development alternatives that combined residential uses with retail or office uses. In many cases housing and retail were included in the same buildings, but in other cases in adjacent buildings on larger sites with open spaces for residents.

The Bowl-o-rama site [we could just say a “typical site�] on Route 1 presents ample size for a hypothetical test case.

At over 5 acres, the site is dominated by large parking areas, multiple owners,

84

II. FOCUS AREAS

CORRIDORS

and parking areas that lie between the street and the retailers. Single story retail uses cover less than 30% of the site and the remaining parking areas lack landscape or open space amenities.

While recent roadway improvements on this site have consolidated driveways, most similar sites have numerous curb cuts in the major roadways that congest traffic and endanger pedestrians.

For these reasons and a desire for more housing in Portsmouth, long term redevelopment of these sites is envisioned to include a wider range of uses including housing, office as well as retail uses. Gateway Zoning is intended to incentivize the transformation of these types of commercial sites.

Gateway Zoning and, in particular a process for Gateway Planned Development allows increased zoning flexibility and incentives for increased density (up to a floor area ratio of 1) when housing is included. For example, allowable lot coverage can increase from 30%to 75% and heights from 40 feet to 60 feet within a Planned Development process. Parking requirements can be reduced from 1.5 spaces per residential unit to 1.3 spaces when mixed with at least 30% retail uses when parking is shared between the uses.

Gateway Zoning and PD process has not yet yielded a targeted mixed-use project.

In many cases land assembly is difficult to make larger site available, and in other cases, long term commercial

DRAFT 3/24/16

PORTSMOUTH 2025

A required parking study for a large development leads to a recommendation for shared parking, decreasing overall parking requirements for the project.

With the assistance of the City, new development includes arts venues outside of Downtown, expanding the reach of the arts in Portsmouth

4.3.4

4.1.2

1.2.1

2.4.3

Adjusted Gateway Planned Development provisions encourage development closer to the public rights of way, making amenities more accessible and helping to calm traffic.

Working with the state to improve major corridors such as Route 1 and its Bypass via traffic calming and infrastructure investment creates a more comfortable experience for pedestrians and people who ride bikes while ensuring adequate automobile access.

1.3.1

DORS Changes to the City’s development standards maximize open space and limit impervious surfaces, improving storm water management and ecological health.

DRAFT

PORTSMOUTH 2025

DRAFT 3/24/16

II. FOCUS AREAS

85

CORRID leases make significant transformation problematic. However, the single largest reason for the lack of interest (excepting Southgate Plaza) is a result of the prevailing environment in the corridors. For many developers, these areas are not yet suitable for mixed-use development, while the North End and Islington corridor offers more immediate redevelopment opportunities in the more typical development horizons of developers. Land owners of commercial property within the corridors also tend to be long term commercial land holders who are not experienced with mixed-use redevelopment, preferring instead to preserve and extend profitable commercial leases with low risk.

A combination of corridor roadway transformation, incentives and development pressure will eventually provide real estate pressure to increase land use intensity within the corridors.

Rents, current parking requirements and market demand will, for the forseeable future, limit the density of future redevelopment. For example, structured parking is currently not supportable within the corridors, which ultimately limits the density of development relative to locations in the downtown. Without direct public subsidy into structured parking, it is unlikely that development density will exceed the current limits allowed within Gateway Planned Development.

Likewise maximum residential density

86

II. FOCUS AREAS

CORRIDORS

(2,500 sq. ft. per unit) is not likely to be exceeded without structured parking.

Nevertheless, once sites closer to the Urban Core are redeveloped, it is likely that attention will shift further along the corridors.

Flexibility should be provided for developers to encourage innovation in redevelopment. However, some site development controls should be strengthened in order to create a more cohesive and predictable transformation of the corridors.

DESIGN GUIDELINES Current zoning incentivizes development closer to the corridor by precluding surface parking within the first 50 feet of the site. To-date the response to this has been to simply landscape large areas in front of parking and setting new buildings even further away from the street. Despite the construction of sidewalks, the result is an environment at odds with the desire for a more pedestrian friendly corridor where pedestrians have easy access to shops and transit. Larger building setbacks simply encourage a more highway like character that leads to higher roadway speeds and less comfortable pedestrians.

In addition, Gateway zoning limits the height of buildings close to the major roadways, further reducing the presence of buildings at the street edge. Visual

DRAFT 3/24/16

PORTSMOUTH 2025

DORS preference studies conducted during the study indicated more acceptance and support for significant building heights (up to 4 stories) with close proximity to the street edge. Design guidelines for the corridors may replace the current incentive structure with actual requirements for building close to the roadway edge, and minimum requirements for height, in addition to maximum. These guidelines would be more effective at getting a desired result than the current incentives.

SOUTHGATE PLAZA SHOPPING CENTER serves

Gateway zoning also requires 20% open space but does not indicate the type of use of such open space. While it remains untested, it is possible that the 20% open space requirement could be used less for traditional public space than hoped, and could work against density goals.

On sites that sit adjacent to existing residential neighborhoods, for example, it may be more advantageous to ensure connectivity to local neighborhood resources and open spaces than to provide less valuable on-site facilities.

Likewise, another goal of open space: to provide sustainable features for site storm water storage and recharge might be better accommodated in more advanced storage and treatment measures such as porous paving or green roof technologies that will provide equal or better treatment performance.

In this case, flexibility with performance goals should drive the process rather than proscriptive requirements.

PORTSMOUTH 2025

DRAFT 3/24/16

as a relevant model for transformation.

Southgate is currently adding xx units of housing to an already wide mix of retail and entertainment uses.

The Plaza already serves the southern gateway neighborhoods with daily shopping and restaurant needs.

Adding housing and improved pedestrian connections to adjacent neighborhoods would illustrate an appropriate model for other, less diverse and pedestrian friendly commercial areas.

CORRIDORS

II. FOCUS AREAS

87

CORRIDOR AREA VISION By 2025, the Corridor areas in Portsmouth have reconnected with their surrounding neighborhoods and serve as exciting announcements of entry into the City. Changes in zoning and development incentives have finally created an environment in which efficient, people-friendly land use is the norm, reducing the need for automobile trips, spurring neighborhood center-style development, and increasing the City’s tax base. The addition of pedestrian and bike infrastructure, born out of reconfigured public rights of way, allows nearby neighborhoods easy access to shopping and services.

Dense development patterns inspired by more affordable land and greater flexibility outside of Downtown have even resulted in housing affordable to residents making 120 percent of Median Area Income. All of this has occurred with an embrace of sustainability thanks to bold site design standards and dedicated funding for public infrastructure and public transit.

SAMPLE

DRAFT 3/24/16

SAMPLE

DRAFT 3/24/16

CORRID CORRIDOR PRIORITY ACTIONS

AUTHENTIC

VIBRANT

PRIORITY # DESCRIPTION

90

II. FOCUS AREAS

1.2.1

Adjust the Gateway Planned Development provisions to encourage desired growth.

1.2.2

Expand the Gateway zoning approaches to the Woodbury Avenue commercial areas.

1.2.3

Promote redevelopment along the Route 1 Bypass north of the traffic circle that is compatible with adjoining neighborhoods.

1.3.1

Provide zoning and other incentives for exhibit, rehearsal and performance spaces.

1.3.2

Encourage the development of cultural and arts venues throughout the city.

1.3.3

Support continued and expanded access to affordable production spaces for artists and artisans.

2.1.4

Ensure new development is designed to consider impacts of climate change.

3.2.2

Promote the development of mixed-income multifamily housing in appropriate locations with incentive zoning provisions, such as reductions in parking requirements and increased maximum heights.

3.2.3

Support the activities of housing agencies in the development of affordable housing.

3.2.7

Promote opportunities to reduce the development costs of affordable housing, such as through contributions to the Workforce Housing Trust Fund and donations of land for housing sites.

3.3.1

Identify flexible, low-cost locations for business startups and support their development through appropriate zoning.

3.3.2

Evaluate existing industrial areas for cost and availability of suitable "maker" and creative industry spaces.

DRAFT 3/24/16

PORTSMOUTH 2025

DORS CORRIDOR PRIORITY ACTIONS

RESILIENT

CONNECTED

DIVERSE

PRIORITY # DESCRIPTION

PORTSMOUTH 2025

3.4.1

Encourage mixed-use redevelopment in existing commercial areas through flexible zoning techniques such as the Gateway Planned Development option.

3.4.2

Support mixed-use redevelopment of suitable Portsmouth Housing Authority properties for long-term viability.

4.1.1

Update the City’s street standards to reflect current design best practices, including full accommodations for bicyclists and pedestrians.

4.1.2

Work with the state to improve major corridors (Lafayette Rd., Route 1 Bypass) to accommodate all users to the extent feasible.

4.2.2

Work with DOT to implement Bicycle and Pedestrian plan recommendations on state highways.

4.2.5

Provide bicycle parking facilities throughout the downtown and in other high use areas to meet identified demand.

4.2.6

Update city ordinances to enhance safety and convenience for bicycles and pedestrians in development projects.

4.3.4

Develop strategies for determining parking requirements for large projects, including parking study requirements, shared parking provisions and site coverage maximums.

4.4.1

Provide fixed route bus service to meet emerging demands and opportunities.

4.4.4

Support the expansion of intercity bus service to better connect Portsmouth to other cities and major destinations such as Manchester Airport.

5.1.3

Adjust policies and standards to maximize open space and limit impervious surfaces.

5.4.3

Strengthen land use regulations and provide incentives for green buildings and sustainable low impact development.

DRAFT 3/24/16

II. FOCUS AREAS

91

BAN NE URBAN

NEIGHBORHOODS

PORTSMOUTH’S WELLESTABLISHED, DENSE URBAN NEIGHBORHOODS PRESENT AN OPPORTUNITY FOR MIXED-INCOME HOUSING AND IMPROVED CONNECTIONS.

Urban Neighborhood areas are those designated as General Residential A and B on the Zoning Map, places where a dense residential fabric butts up against the Urban Core. While some scattered commercial uses currently exist, the traditional residential neighborhood character is most prevalent, with some parts of the Urban Neighborhood areas falling within the Historic District.

EXISTING CONDITIONS ANALYSIS FINDINGS Despite robust growth in Downtown, Portsmouth’s population has not increased and housing costs are rising faster than incomes. Among those increasingly burdened by the cost of housing are Portsmouth’s aging population and those residents making 80-120% of median income. While Portsmouth Housing Authority manages enough affordable housing to satisfy the City’s fair share burden, a large number

92

II. FOCUS AREAS

URBAN NEIGHBORHOODS

of residents 30-44 years old – the prime age range for family- and household-creation – are moving out, in part because of the high cost of housing.

• Rental cost-wage and ownership cost-

wage imbalances make it very difficult for people to afford to live in Portsmouth. 44% of renters and 34% of owners are housing cost-burdened.

• 28% of home owners without mortgages are housing cost-burdened, with insurance, taxes, and maintenance costs at more than 30 percent of their annual income.

• There is very limited undeveloped land on which to build new residential uses.

• 39% of people living in Portsmouth live alone, but small housing units (studio and 1-bedroom units) currently comprise only approximately 20% of the units in Portsmouth.

• An aging population could require more senior and affordable housing options in the near future.

• Approximately 55% of residents would be unable to affordably purchase a home in Portsmouth at current income distributions and housing costs.

• The approvals process in Portsmouth can be burdensome and uncertain, leading many developers to seek projects with luxury rather than affordable housing.

• Affordable housing incentives in the Downtown have failed to result in any affordable housing development.

DRAFT 3/24/16

PORTSMOUTH 2025

EIGHBO PUBLIC INPUT

“For Portsmouth to be a ‘city for all‘ it is

important to provide affordable single-family, workforce, and senior housing.”

“There are restrictions for building in-law

apartments. Seniors want to stay in their homes but need help.”

“Housing has been the consistent concern of

our group. Housing for moderate income retired

people, i.e., public servants, teachers, artists, etc.; and affordable family opportunities”

“Expand zoning to include assisted living opportunities in all areas of the city. Make it Industrial Commercial

to keep their houses while Portsmouth possible for older folks 100% COMMUTE BY AUTOMOBILE Conservation Lands maintaining their standard of living (aging in State, Federal, Municipal, State, place) via tax relief.”

Institutional, Federal, or Non-profit or Nonprofit

COMMUTING

BY AUTOMOBILE Non-Developable

Mixed Use

City of Portsmouth

Potentially Developable

0% COMMUTE BY AUTOMOBILE

Non-SF Residential Source: GRANIT, City of Portsmouth GIS, City Assessor Data, American Community Survey 5-Year Estimates Single Family Residential

Figure II-7. Land use in the Urban Neighborhood areas consists mostly of dense single family or multifamy residential, though some scattered commercial uses also appear.

0

2,500

5,000

0

0.5

1

10,000 fee

2 mile

Figure II-8. AIn comparison to overall commuting habils in Portsmouth, automobile dependency for commuting tends to be relatively low in the Urban Neighborhoods

NEWINGTON

KITTERY

96%

93%

80% 92% 58% 87%

54%

71%

NEW CASTLE

76% 88%

70%

92% 95% 66% 94% 90%

PORTSMOUTH 2025

DRAFT 3/24/16

URBAN NEIGHBORHOODS

II. FOCUS AREAS

93

BAN NE General Residence districts feature a variety of older residential neighborhoods and allow for multi-family housing based on allowable lot size.

General Residential (GRA, GRB, and GRC) zoned areas encompass 558 acres of the City (approximately 6%).

The GRA district allows single family as well as two, three, and four family dwelling units per lot. A minimum of 7,500 sf of lot area per dwelling unit is required. Small bed and breakfasts are allowable via special exception, and conversion of structures to accommodate up to four families is permitted subject to dimensional requirements. Additional permitted uses include small scale daycares (with larger daycares requiring a special exception, and accessory units.

The GRB district includes older neighborhoods with small lots featuring a variety of residential structure types.

The major GRB districts are located south of the traditional downtown, generally within three or four blocks from the waterfront, and in the Atlantic Heights neighborhood. Like the GRA, the GRB allows single to four family dwelling units use, but only requires a minimum lot size of 5,000sf per dwelling unit. In contrast to the GRA, several uses are subject to greater scrutiny, and there are restrictions on uses such as recreation and nursing homes..

94

II. FOCUS AREAS

URBAN NEIGHBORHOODS

Replacing the former “Apartment� zoning district, the GRC district provides areas for single-family, two-family and multifamily dwellings, with appropriate accessory uses, at moderate to high densities (that range from approximately 5 to 12 dwelling units per acre), together with appropriate accessory uses and limited services. Located just west of downtown and bounded by McDonough and Middle Streets, this district features the smallest minimum lot requirement of all residential districts (3,500 sf.). Like GRB, several uses are subject to greater restriction, including daycares of more than seven children.

GRA, GRB and GRC minimum lot areas per dwelling unit have created many non-conforming parcels, which necessitates special permits or variances for minor changes including the addition of accessory units and conversion of single family homes to multi-family units even when permitted in the underlying zoning. The special permit and variance process creates a strong disincentive for elderly or lower income residents to legally allow boarders or other non-relatives to live in older large homes and thus reduce housing costs for owners.

PUBLIC ENGAGEMENT Residents had the opportunity to attend three neighborhood meetings addressing the issues of existing

DRAFT 3/24/16

PORTSMOUTH 2025

EIGHBO Existing parking regulations would require additional parking for any new accessory unit added to the parcel and would not allow for onstreet parking.

4.2.4

However, the large lot depth on many parcels in the Urban Neighborhoods could allow for additional dwelling units.

Secondary structures and spaces could additionally be used to house small-scale workshops to support home businesses and cottage industries.

1.2.2

Existing lot sizes are non-conforming, with requirements of 7,500 sf but actual lots of approximately 6,000 sf.

DRAFT

PORTSMOUTH 2025

DRAFT 3/24/16

II. FOCUS AREAS

95

BAN NE neighborhoods. The potential for changes such as increased density, in-law apartments or “granny flats�, accessory uses would require modifications to existing zoning regulations, and residents were invited to explore possible solutions.

Unsurprisingly, few residents expressed a desire for such changes, pointing to adjacent commercial zones as the appropriate location for future housing density. Many residents pointed to overcrowding, parking availability and character issues to describe their support for the status quo. The current regulatory requirements allow multi-family conversions in General Residence districts, but the vast majority of homeowners must undertake an onerous special permit process that includes seeking approval from abutters. The single family zoned areas of the City that have large lot sizes are more adaptable to multi-family units, However, no residents supported multi-family uses in single family areas, particularly when they are remote from transit.

Some residents pointed out the difficulty in engaging in the special permit or variance process, especially for seniors or lower income residents who are financially struggling to pay taxes and heat homes. Many of these residents simply sublet apartments illegally, rather than go through a potentially lengthy process to legally convert existing premises into multi-family units.

96

II. FOCUS AREAS

URBAN NEIGHBORHOODS

SPECIFIC RECOMMENDATIONS ADJUST MINIMUM LOT REQUIREMENTS

In General Residence Zones A, B and C, multi-family units are permitted subject to minimum lot areas per dwelling. As many of the existing homes are on substandard lots, adding a unit almost invariably results in a challenging permitting process or a variance. Even in cases where the resident desires to subdivide an older home into two or more units, without adding any additional built area to the lot, a non-conforming parcel size often triggers the need for a variance or a special permit proces

ADJUST OFF-STREET PARKING REGULATIONS Parking requirements for residential uses are the same in all residential districts: 2 spaces per dwelling unit for up to two units. Beyond two units the requirements are reduced to 1.5 spaces per dwelling unit. Within many established neighborhoods, off street parking spaces are not uniformly distributed and many homes are simply grandfathered without off street spaces.

Any special permits for a second unit would require a homeowner to provide considerably more spaces (in some cases up to four spaces) in order to add a second legal accessory apartment.

DRAFT 3/24/16

PORTSMOUTH 2025

EIGHBO Possible Accessory Dwelling Unit Schemes in Urban Neighborhood Areas

With new regulations, a new unit could be attached and part of the existing structure, built as a small addition to the home that adds 600 sf and allows the structure to be split into 2 units.

Another option would be to construct new dwelling unit of similar size to the existing, creating a second 1,900 sf home attached to the original.

A third configuration would allow a detached unit to be constructed.

Under all scenarios, updated parking regulations could eliminate the need to dramatically expand driveways

DRAFT

PORTSMOUTH 2025

DRAFT 3/24/16

URBAN NEIGHBORHOODS

II. FOCUS AREAS

97

URBAN NEIGHBORHOOD

AREA VISION

In 2025, the dense walkable neighborhoods close to the Urban Core provide housing in various sizes and tenancy types. The variety of options helps preserve neighborhood character and provide affordable accommodations for the elderly, singles, and families. With easy access to Downtown and the West End, these neighborhoods allow more people to walk or bicycle to work, or to events on the weekend.

Some residents completely forego automobile ownership, relying instead on a mix of car-sharing, public transit, and non-motorized transportation to reach their destinations. The tightly-knit fabric of the neighborhood encourages interaction among residents and the sharing of open spaces and other sometimesscarce resources contributing to a more-affordable cost of living. The traditional character of the areas is preserved via a rigorous and transparent design review process and, in places, an extension of the Historic District Overlay. These regulations are balanced with allowances for context-sensitive development on underdeveloped parcels.

SAMPLE

DRAFT 3/24/16

SAMPLE

DRAFT 3/24/16

BAN NE URBAN NEIGHBORHOOD

DIVERSE

AUTHENTIC

VIBRANT

PRIORITY ACTIONS

100

II. FOCUS AREAS

PRIORITY # DESCRIPTION 1.4.1

Ensure that neighborhood parks and playgrounds are regularly maintained and upgraded.

2.1.1

Implement standards and guidelines to protect the character and longevity of buildings in individual neighborhoods.

3.1.1

Develop regulations for accessory dwelling units that promote affordable housing and protect neighborhood character.

3.1.2

Implement housing rehabilitation programs using CDBG and other funds to improve housing stock.

3.1.3

Expand opportunities for home-based businesses.

3.2.1

Streamline the approval process for affordable housing in order to reduce development costs.

3.2.4

Provide incentives for low to moderate income first-time homebuyers to purchase homes in Portsmouth.

DRAFT 3/24/16

PORTSMOUTH 2025

EIGHBO URBAN NEIGHBORHOOD

PRIORITY ACTIONS

CONNECTED

PRIORITY # DESCRIPTION

PORTSMOUTH 2025

3.2.5

Encourage the creation of smaller housing units, such as micro-units.

3.2.6

Encourage businesses to establish employer-assisted housing programs.

3.4.3

Identify locations and conditions under which live/work units can be safely and appropriately allowed.

4.2.1

Implement Bicycle and Pedestrian Plan priorities in the neighborhoods.

4.3.2

Complete parking demand and supply studies to determine appropriate zoning standards in various districts and neighborhoods.

4.3.3

Adjust off-street parking requirements to account for variables in public supply, neighborhood congestion, etc.

DRAFT 3/24/16

II. FOCUS AREAS

101

SUBURB SUBURBAN

NEIGHBORHOODS

PORTSMOUTH’S LOW-DENSITY NEIGHBORHOODS CAN PLAY AN IMPORTANT ROLE IN ACCOMMODATING CHANGE AND IMPROVING QUALITY OF LIFE IN THE CITY.

Suburban Neighborhood areas are characterized by a low-density development pattern, as specified by their zoning designation as Single-family Residential A or B (SRA or SRB), or Rural (R). As a result, almost all of the land use in the Suburban Neighborhood areas is limited to single family residential or natural resource protection. These areas are often adjacent to commercial or industrial uses and have extremely limited non-motorized access to services and amenities. Housing in the Suburban Neighborhoods, though comparatively sparse, is nonetheless expensive relative to surrounding communities.

EXISTING CONDITIONS ANALYSIS: KEY FINDINGS Portsmouth’s lower density neighborhoods cover 21% of the city area and provide housing for a range of family sizes and incomes. Single family neighborhoods vary from large lot luxury

102

II. FOCUS AREAS

SUBURBAN NEIGHBORHOODS

homes and cluster development in Tidewater Estates along Sagamore Creek and post war tract housing in Elwyn Park and manufactured housing in Lafayette Road. Housing prices in the Suburban Neighborhoods vary widely, but the cost of even small tract homes is rising more quickly than wages. The number of households of family-creating age (30-44 years old) has declined in Portsmouth by 17% in the last decade while households with 45-60 year olds have increased. 28% of home owners without mortgages are housing cost-burdened, with insurance, taxes, and maintenance costs at more than 30% of their annual income. Furthermore 39% of people living in Portsmouth live alone, but small housing units (studio and 1-bedroom units) currently comprise only 20% of the units in Portsmouth.

Pending legislation may soon mandate all single family neighborhoods in New Hampshire accept accessory units by right. In such an event, the changing demographics will require the City to re-evaluate site and development standards.

Residents in all neighborhoods cite problems with current conditions. Some neighborhoods suffer from isolation, lack of local amenities and are impacted by highly trafficked roadway corridors that isolate, rather than connect these neighborhoods and local services.

Walking within these neighborhoods is pleasant, but walking from these neigh-

DRAFT 3/24/16

PORTSMOUTH 2025

BAN NE PUBLIC INPUT

“We need affordable housing throughout the city.”

“There are not enough safe walking and biking routes among all areas of the city.”

“The connections between neighborhoods and a Corridor areas should be inviting and green.”

“Downtown has great amenities, but we should

spread out amenities across all of Portsmouth so everyone can access them.”

“We must protect our environment, understand and develop policies to mitigate impact of climate change, and promote alternative and renewable energy as well as recycling and composting.”

Industrial

City of Portsmouth

Commercial

Non-Developable

Mixed Use

Potentially Developable

Portsmouth Conservation Lands State, Federal, Institutional, or Nonprofit

COMMUTING BY AUTOMOBILE

Municipal, State, Federal, or Non-profit

Figure II-10. As compared to the city overall, automobile

Non-SF Residential

Figure II-9. Land use in the Surburban Neighborhood areas is Single Family Residential almost exclusively single family residential.

100% COMMUTE BY AUTOMOBILE

0% COMMUTE BY AUTOMOBILE

dependency for commuting is high in the Suburban Neighborhood areas

Source: GRANIT, City of Portsmouth GIS, City Assessor Data, American Community Survey 5-Year Estimates

NEWINGTON

0

2,500

5,000

0

0.5

1

2 miles

KITTERY

96%

93%

10,000 feet

80% 92% 58% 87%

54%

71%

NEW CASTLE

76% 88%

70%

92% 95% 66% 94% 90%

93% RYE

GREENLAND

93% 82%

N

PORTSMOUTH 2025

N

DRAFT 3/24/16

SUBURBAN NEIGHBORHOODS

II. FOCUS AREAS

103

SUBURB borhoods to local services can be loud, dangerous, and uncomfortable. Transit options for low density areas are limited, increasing dependency on automobile use for daily trips and commutes.

Some of these neighborhoods have access to preserved and attractive green spaces and accessible waterfronts, but many more abut areas that are undeveloped or poorly maintained, or industrial zones or large parking areas that are unattractive or noisy. Improving the quality of life for these neighborhoods is a high priority for Portsmouth 2025.

The lower density of Portsmouth’s single family residential areas create an opportunity for sustainable development practices that can both protect natural resources such as water quality, but also offer sites for renewable energy, waste reduction and food production.

Many of the areas streets already divert storm water into natural swales and open spaces, but new “low intensity development” practices can improve the water quality of these diverted waters.

PUBLIC ENGAGEMENT Three public workshops were held in the fall of 2015 at three neighborhood locations. Participants represented every neighborhood in the city and engaged in a series of exercises to rank livability in each neighborhood.

Residents were grouped by location and invited to participate in three exercises:

104

II. FOCUS AREAS

SUBURBAN NEIGHBORHOODS

Exercise 1: Local Services and Vitality: residents were asked about the availability of local daily services in proximity to their homes (1/2 mile) and then asked to identify missing services that were needed in proximity to their homes. Most residents indicated that ample and varied services existed in nearby shopping centers, schools and parks. However, most indicated that these trips were generally done by car due to the poor walkability of the commercial corridors and lack of sidewalk amenities to get to these retail areas, parks and schools.

Exercise 2: Neighborhood Walkability: Residents were asked to rank their neighborhood streets and roads by walkability criteria. Many residents indicated their high satisfaction with local residential streets where speeds and traffic volumes were low even when they lacked separate pedestrian facilities. Collector roads, however, created unsatisfactory conditions when traffic volumes and speeds were higher, especially when they lacked adequate sidewalk and crossing features. Major commercial corridors were considered by most residents to be unsafe or dangerous for pedestrians and a major impediment to walking or cycling for short trips from the home.

Exercise 3: New Housing Opportunities: Residents were asked to locate (on provided maps) where additional housing might be created in their

DRAFT 3/24/16

PORTSMOUTH 2025

BAN NE The maximum curb cut currently allowable in the SRA and SRB zoning districts provides enough width to accommodate additional parking following the constructino of an accessory unit.

Existing garages can be converted to housing such as “in-law apartments�.

The additional of an accessory unit could be accomplished while maintaining existing setback requirements

The addition of bioswales along wide rights-of-way can improve stormwater management and add valuable green space in neighborhoods.

DRAFT

PORTSMOUTH 2025

DRAFT 3/24/16

II. FOCUS AREAS

105

SUBURB neighborhoods to help alleviate housing shortage issues as identified

by Portsmouth Listens as a primary concern. Again, most residents were not eager to see such changes in their neighborhoods, and believed nearby commercial zones were more appropriate locations for future housing.

SPECIFIC SITE STUDIES Pending state legislation may require the approval of second or subordinate units in all single family neighborhoods. Even if such legislation were not under consideration, the opportunity for second units in low-density neighborhoods would be begin to address the shortage of appropriate housing that threatens to make Portsmouth unaffordable for so many families.

Additional off street parking and dimensional guidelines for accessory units can preserve neighborhood character while accommodating more residents in Portsmouth.

Portsmouth may ultimately permit second units in Single Family Residential zoning districts through City-initiated changes, or as mandated

by State legislation. Dimensional requirements should be developed to define the maximum size of second units, lot coverage, setbacks and heights for additions or free-standing second units as well as parking requirements.

Because underlying minimum lot size requirements in many neighborhoods would preclude the approval of second

106

II. FOCUS AREAS

SUBURBAN NEIGHBORHOODS

units without variances, adjustments to minimum lot sizes would streamline the permitting process and allow additional units with requiring variances.

Another opportunity for lower density neighborhoods in Portsmouth is the implementation of low impact development standards for new roadways and residential development permits. Avoiding storm gutters and drains within the public rights of way, can reduce the cost of infrastructure and, if properly designed, ensure that rainwater absorbed and conveyed to natural wetlands, streams and rivers.

Proper grading and design of infiltration zones will be essential to avoid standing water, ice and other hazards associated with surface runoff. If properly designed, private yards and public infrastructure will reduce the loads on the central wastewater facility and the cost of maintaining expensive storm water.

Low density neighborhoods are also ideal for energy and food production.

Employing solar collection on the large roof areas in these neighborhoods can help turn residential neighborhoods into net-positive energy districts. Waterfront areas and very low density homes can harvest wind through the use of residential scaled wind turbines. Low density neighborhoods can reduce transport cost for waste flows by composting kitchen and yard waste on site or by using waste for food production. Many cities

DRAFT 3/24/16

PORTSMOUTH 2025

BAN NE Along collector roads, however, a lack of pedestrian infrastructure such as crosswalks results in a more threatening experience for those trying to walk to local services.

Within the neighborhood itself, residents do not feel a strong need for sidewalks: low traffic volumes and tree-lined streets make for a pleasant pedestrian experience.

4.2.4

3.2.1

2.4.3

Larger curbside swales could provide more public green space and mitigate stormwater runoff.

DRAFT

PORTSMOUTH 2025

DRAFT 3/24/16

SUBURBAN NEIGHBORHOODS

II. FOCUS AREAS

107

SUBURB are allowing a range of home-based artisanal production from small-scale farm production, (including animals) and on-site sales. Many of these uses are new to residential areas and require adjustments to existing zoning regulations.

108

II. FOCUS AREAS

SUBURBAN NEIGHBORHOODS

DRAFT 3/24/16

PORTSMOUTH 2025

BAN NE PLACEHOLDER

PORTSMOUTH 2025

DRAFT 3/24/16

SUBURBAN NEIGHBORHOODS

II. FOCUS AREAS

109

SUBURBAN NEIGHBORHOOD

AREA VISION

Portsmouth’s low density neighborhoods will continue to provide a range of housing stock from luxury to affordable that suit the needs of the city’s families. Accessory units will be created with smaller in-law units or detached second units that preserve the character of the neighborhood and provide an even greater diversity of housing types. Residents will have easier access to local services (shops, restaurants and cultural resources) that are accessible by car or on foot or bicycle on safe streets, bike lanes and sidewalks.

Residents will be connected by future rail trail conversions to commercial centers, regional open spaces and nearby communities.

Residents will enjoy nearby recreation, parks, open spaces and waterfronts that are accessible and safe and increasingly connected by greenways to other neighborhoods. Low density neighborhoods will be laboratories for more sustainable street and site designs that reduce storm runoff and explore renewable energy opportunities.

SAMPLE

DRAFT 3/24/16

SAMPLE

DRAFT 3/24/16

SUBURB SUBURBAN NEIGHBORHOOD

DIVERSE

AUTHENTIC

VIBRANT

PRIORITY ACTIONS

112

II. FOCUS AREAS

PRIORITY # DESCRIPTION 1.4.1

Ensure that neighborhood parks and playgrounds are regularly maintained and upgraded.

2.1.1

Implement standards and guidelines to protect the character and longevity of buildings in individual neighborhoods.

2.1.4

Ensure new development is designed to consider impacts of climate change.

3.1.1

Develop regulations for accessory dwelling units that promote affordable housing and protect neighborhood character.

3.1.2

Implement housing rehabilitation programs using CDBG and other funds to improve housing stock.

3.1.3

Expand opportunities for home-based businesses.

3.2.4

Provide incentives for low to moderate income first-time homebuyers to purchase homes in Portsmouth.

3.2.6

Encourage businesses to establish employer-assisted housing programs.

DRAFT 3/24/16

PORTSMOUTH 2025

BAN NE SUBURBAN NEIGHBORHOOD

PRIORITY ACTIONS CONNECTED

PRIORITY # DESCRIPTION

PORTSMOUTH 2025

4.1.1

Update the City’s street standards to reflect current design best practices, including full accommodations for bicyclists and pedestrians.

4.2.1

Implement Bicycle and Pedestrian Plan priorities in the neighborhoods.

4.2.4

Identify and implement off-road multi-use paths where feasible.

4.3.2

Complete parking demand and supply studies to determine appropriate zoning standards in various districts and neighborhoods.

4.3.3

Adjust off-street parking requirements to account for variables in public supply, neighborhood congestion, etc.

DRAFT 3/24/16

II. FOCUS AREAS

113

PARKS & OPEN SPACE

PORTSMOUTH’S UNBUILT AREAS MUST CREATE A CONNECTED OPEN SPACE SYSTEM FOR HUMANS, WILDLIFE AND A MORE RESILIENT FUTURE Parks and Open Space in Portsmouth is distributed throughout the City, though not evenly. Many of these areas lie further beyond the Urban Coreand Urban Neighborhoods. Though some of the land is zoned for natural resource protection, there is also significant open space that is zoned for other uses but is, in reality, undevelopable due to environmental constraints.

EXISTING CONDITIONS ANALYSIS: KEY FINDINGS A combination of private, state and city preserved parcels cover 40% of Portsmouth, making up the Parks and Open Space Focus Area. Combined with the privately owned lands that are unbuildable due to wetland designation, Portsmouth has a very high percentage of open space per capita. Regrettably, much of this open space is neither well maintained nor particularly useable for passive human recreation. As a result, invasive species have colonized much of Portsmouth’s natural areas many of which now host semi-permanent

114

II. FOCUS AREAS

PARKS & OPEN SPACE

encampments of homeless residents.

As the city’s demographics shift in age and income levels, specific needs for recreational uses will also change. An aging population and fewer childrearing families will increase demand for passive open spaces for walking and cycling while the need for active recreation in the form of fields and playgrounds may decrease.

Much of Portsmouth’s preserved open spaces are along streams and waterways that will face increasing stress with rising sea levels, and experience severe weather events because of climate change. The design and maintenance of these passive open spaces should anticipate multiple uses, from wildlife habitat to human recreation and environmental resiliency. Riparian buffers, wetlands and preserves located near new development areas can be combined with on-site treatment to create more useful and sustainable open space systems.

Current open spaces have been preserved by various entities, in many cases without the benefit of full coordination. The result is a patchwork of preserved spaces that are, in many cases, isolated from one another. As natural systems function better as a network, so do recreational and human networks. A continuous system of open spaces, linked by trails, paths, and safe road crossings, will better serve residents by connecting neighborhoods

DRAFT 3/24/16

PORTSMOUTH 2025

PUBLIC INPUT “It’s important that we have infrastructure that protects our natural resources.”

“We want to complete the Riverwalk from Bow Street to Pierce Island with public access throughout.”

“We’re looking for the purposeful preservation and expansion of open and recreational spaces and the waterfront.”

“The waterfront is an asset, but the public has so little access to it. We need to focus on the preservation of the waterfront and especially focus on access and views.”

City of Portsmouth

Commercial

Non-Developable

Portsmouth Conservation Lands State, Federal, Institutional, or Nonprofit

Potentially Developable Use Figure II-11. Land use inMixed the Parks & Open Space is nearly Non-SF Residential

entirely protected natural resources or municipally-owned and Single Family Residential -operated.

MAP 7-4 CONSERVATION & PUBLIC LANDS Figure II-12. Conservation and publicly-owned lands in LEGEND

Industrial

Portsmouth public lands

Portsmouth conservation lands

Neighboring town/city conservation lands

Source: GRANIT, City of Portsmouth GIS, 2015

0

2,500

5,000

0

0.5

1

10,000 feet

2 miles

Portsmouth tend to be large but relatively disconnected tracts..

WO

OD

BU

RY AVE

KITTERY

NEWINGTON

IN

LD

AU SP GT

MAR

E

PK

KET

ST

MAPLEW

OOD AVE

T

NS

TO

NG

NEW CASTLE

MID D

LE

ST

ISLI

H ST

SOUT

U.S.

VE EA

OR

AM

BYP

G SA

E1

ROUT D

ER

DL

MID

WENTWORTH COOLIDGE

GREENLAN

PEVE

D RD

RLY LR

HIL LAFAYETTE RD

D

URBAN FORESTRY CENTER

THE GREAT BOG

I-95

ELWYN RD

CO

GREENLAND

ELD

NS

RD

NFI

BA

UT

ION

AV E

RYE

OC

EA

NR

FA YE T

TE

RD

D

LA

PACKER BOG

TIT

N

PORTSMOUTH 2025

N

DRAFT 3/24/16

PARKS & OPEN SPACE

II. FOCUS AREAS

115

PARKS & and better distributing a variety of landscapes and recreational resources among the neighborhoods. Likewise, alternative ways to travel, such as walking or cycling, would benefit greatly from contiguous trails or paths within natural settings that would encourage non-vehicular trips for work, pleasure or daily needs. These trails would tie into to future pedestrian paths and bike networks that will be created from former railways and narrowed roadways.

On Portsmouth’s historic waterfront along the Piscataqua River, public access and view corridors are the primary concern. Preserving historic landscapes will reinforce the authenticity of Portsmouth seafaring heritage.

PUBLIC ENGAGEMENT Three public workshops were held in the fall of 2015 at three neighborhood locations. Participants represented every neighborhood in the city and engaged in a series of exercises to rank livability in each neighborhood. Residents were grouped by neighborhood and invited to participate in several exercises: Exercise 1: Uses: Residents were asked about the availability of local daily services in proximity to their homes (1/2 mile) and then asked to identify missing services that were needed in proximity to their homes. Many indicated they use local parks and playgrounds as much as daily.

116

II. FOCUS AREAS

PARKS & OPEN SPACE

Exercise 2: Neighborhood Walkability: Residents were asked to rank all streets and roads by walkability criteria. Many indicated paths and trails as important elements of walkability. Others stressed the lack of pedestrian accommodations on major highways and boulevards.

Residents were satisfied with local streets even those without sidewalks if traffic volumes and speeds were low.

Exercise 3: Authenticity: Residents were asked about the elements in their neighborhoods that contributed to giving their neighborhood feel authentic and unique to Portsmouth. In the downtown, this included historic landmarks, the waterfront and parks and, in some cases, newer cultural or civic venues. In more outlying areas, most residents identified the original housing stock, local parks and natural landscapes as contributing the most to authenticity of their neighborhood. In the outlying areas, few indicated that new construction contributed to authenticity.

SPECIFIC SITE STUDIES Green spaces in Portsmouth must harness the Power of the Network.

Creating connections between various existing open spaces and parks will develop a strong network that can support healthy human and ecological development.

DRAFT 3/24/16

PORTSMOUTH 2025

& OPEN A lack of connectivity to and through existing open spaces such as cemetaries inhibits the creation of an open space network.

The current lack of crosswalks on some collector roads makes it difficult for pedestrians and cyclists to acceess nearby open spaces.

5.2.4

5.2.2

2.3.2

Parks and open spaces can be enhanced by creating better connections to Portsmouth’s waterfront, and to existing kayak and canoe trails.

DRAFT

DRAFT 3/24/16

PARKS & There are several types of parks and open spaces in Portsmouth that each require a discerning approach for improvement and the creation of connections to a larger network.

Neighborhood parks provide local access to public green space for residents, and can serve as entry points to the regional system of parks and greenways.

Greenways perform important human and ecological functions, allowing for continuous use of land for recreation, travel, or species habitat. Greenways can connect users to many different types of districts while ensuring a safe and comfortable experience.

Rails-to-trails conversions provide direct links between historical nodes, helping connect residents and visitors to Portsmouth’s history and alternative modes of transportation to reach important destinations.

Water access is critical in Portsmouth, given the City’s extensive historical relationship to the Great Bay and the Atlantic Ocean beyond it. Portsmouth residents have demonstrated strong preferences for improved access to this resource, and increasing the number of

DRAFT 3/24/16

& OPEN Non-motorized paths through Portsmouth will also increase access to jobs and services for those living in the neighborhoods.

5.2.2

5.2.2

New neighborhood green spaces will help create more cohesive communities by providing public gathering places.

1.4.1

4.2.3

Open spaces can serve as valuable connections to regional systems, by creating links to such networks as rail trails.

Neighborhood access points can allow for non-motorized paths across the city that increase connectivity without increasing neighbrohood traffic.

DRAFT

DRAFT 3/24/16

PARKS & OPEN SPACE VISION Portsmouth’s open spaces and landscapes will serve multiple functions: from recreation to wildlife habitat and as resilient landscapes to protect residents from climate change. Residents will use their open spaces at the local level, as places to relax, play sports, or walk to local services. Residents will use their open spaces to gain access to the urban core and other neighborhoods or regional open spaces with safe and usable trails and paths that provide alternatives to the current road system.

SAMPLE

Residents from neighboring communities will be able to access Portsmouth by regional trails that connect communities with greenways, bikeways and hiking trails from Massachusetts to Maine. Portsmouth’s extensive shorelines on the Piscataqua and other rivers and bays will be accessible with numerous public points to launch boats, land boats and enjoy the water.

DRAFT 3/24/16

SAMPLE

DRAFT 3/24/16

PARKS & URBAN CORE PRIORITY ACTIONS

CONNECTED AUTHENTIC

VIBRANT

PRIORITY # DESCRIPTION

122

II. FOCUS AREAS

1.4.2

Create additional outdoor recreational fields where possible.

1.4.3

Develop recreational trail along North Mill Pond and other transportation and utility corridors.

1.4.4

Enhance existing recreational facilities at South Mill Pond and other locations.

1.4.7

Support enhancements to Prescott Park and Peirce Island.

2.3.2

Actively protect, enhance, and acquire public waterfront access.

4.2.3

Work with state and regional partners to convert the former Hampton branch to the off-road route of the New Hampshire Seacoast Greenway.

4.2.4

Identify and implement off-road multi-use paths where feasible.

DRAFT 3/24/16

PORTSMOUTH 2025

& OPEN URBAN CORE PRIORITY ACTIONS

RESILIENT

PRIORITY # DESCRIPTION

PORTSMOUTH 2025

5.1.3

Adjust policies and standards to maximize open space and limit impervious surfaces.

5.2.1

Identify and prioritize undeveloped land for acquisition and preservation.

5.2.2

Pursue open space acquisitions that create corridors and connections.

5.2.4

Create and implement stewardship plans for major public open space parcels addressing resource enhancement and public access.

5.2.5

Create a passive recreation program focused on expansion and maintenance of recreational trails.

5.3.2

Protect and care for existing trees, native vegetation and woodlands, and identify areas for new plantings.

5.3.4

Evaluate resiliency of salt marsh wetlands to sea level rise and implement protective measures where necessary.

5.3.5

Track expansion of invasive species, and respond and adapt to threats as necessary.

DRAFT 3/24/16

II. FOCUS AREAS

123

ND USE NATURA OUSING FACILITI ECREAT TRANSP IMPLEMENTATION

CULTURAL & HISTORIC

48

ECONOMIC DEVELOPMENT

49

FACILITIES & SERVICES

50

HOUSING 52 LAND USE 53 NATURAL RESOURCES

54

TRANSPORTATION 57

RECREATION 60

DRAFT 3/24/16

E AL G IE TION POR

IMPLEMENTATION

AN IMPLEMENTATION PLAN IS A TOOL INTENDED TO SET OUT A SPECIFIC SET OF ACTIONS TO GET FROM THE STATUS QUO TO THE DESIRED END-RESULT.

Althouth Portsmouth 2025 has been built on the five Planning Themes instead of traditional disciplinary boundaries, it is worth acknowledging that for a city to function at its best, each department, agency, and individual should have a clear set of actions to perform.

To that end, the final piece of Portsmouth 2025 is a set of tables organized by the usual planning topics: Land Use, Natural Resources, Housing, Facilities and Services, Recreation, Transportation, Economic Development, Social Services, and Cultural and Historic resources. The following pages also indicate the relevant theme for each priority action, relevant city departments or agencies, an appropriate implementation timeframe, and a corresponding code from the 2005 master plan (where applicable).

PORTSMOUTH 2025

DRAFT 3/24/16

III. IMPLEMENTATION

125

CULTURAL & HISTORIC

THEME

126

PRIORITY # DESCRIPTION

Vibrant

1.3.2

Encourage the development of cultural and arts venues throughout the city.

Vibrant

1.3.3

Support continued and expanded access to affordable production spaces for artists and artisans.

Authentic

2.2.1

Identify and protect scenic road corridors and priority views.

Authentic

2.2.2

Seek grant funding to protect Portsmouth’s historic resources.

Authentic

2.2.4

Consider archaeological review during site plan review process and public projects.

Authentic

2.3.2

Actively protect, enhance, and acquire public waterfront access.

Connected

4.1.4

Implement the citywide wayfinding program.

III. IMPLEMENTATION

RELEVANT DEPTS.

DRAFT 3/24/16

TIME FRAME

2005 CODE

CH-1.6

PORTSMOUTH 2025

ECONOMIC DEVELOPMENT

THEME

PRIORITY # DESCRIPTION

RELEVANT DEPTS.

TIME FRAME

2005 CODE

Authentic

2.2.3

Consider becoming a Certified Local Government to offer commercial historic property owners federal tax benefits.

Authentic

2.3.3

Preserve water-dependent and water-related uses.

Diverse

3.1.3

Expand opportunities for home-based businesses.

Diverse

3.3.1

Identify flexible, low-cost locations for business startups and support their development through appropriate zoning.

ED-1.1

Diverse

3.3.2

Evaluate existing industrial areas for cost and availability of suitable "maker" and creative industry spaces.

ED-1.4

PORTSMOUTH 2025

DRAFT 3/24/16

ED-5.2

III. IMPLEMENTATION

127

FACILITIES & SERVICES

THEME

128

PRIORITY # DESCRIPTION

RELEVANT DEPTS.

TIME FRAME

2005 CODE

Vibrant

1.1.4

Create a comprehensive program for downtown solid waste management.

Authentic

2.1.3

Update public infrastructure standards to support desired community character.

Resilient

5.1.2

Establish a stormwater enterprise fund to finance the construction, operation and maintenance of stormwater facilities.

Resilient

5.1.4

Protect reservoir watershed areas and wellhead zones of contribution through land acquisition, regulation, and other available means.

FS-5.1

Resilient

5.1.5

Ensure an adequate supply of water to meet future needs.

FS-5.2

Resilient

5.1.7

Incorporate climate change adaptation into capital planning for long-term infrastructure protection.

Resilient

5.4.1

Develop an expanded recycling center to improve operational efficiencies and reduce the cost of municipal solid waster management.

FS-8.4

Resilient

5.4.2

Increase landfill diversion rates for government, commercial and residential users.

FS-8.1

Resilient

5.5.2

Plan for resiliency of critical services and municipal infrastructure.

Resilient

5.5.3

Ensure that Hazard Mitigation Plan updates reflect current projections of climate change impacts.

Resilient

5.5.4

Conduct regular vulnerability assessments at five year intervals.

III. IMPLEMENTATION

DRAFT 3/24/16

PORTSMOUTH 2025

HOUSING

THEME

PRIORITY # DESCRIPTION

RELEVANT DEPTS.

TIME FRAME

2005 CODE

Vibrant

1.1.1

Support reinvestment in underutilized downtown buildings and land.

Diverse

3.1.1

Develop regulations for accessory dwelling units that promote affordable housing and protect neighborhood character.

Diverse

3.1.2

Implement housing rehabilitation programs using CDBG and other funds to improve housing stock.

Diverse

3.2.1

Streamline the approval process for affordable housing in order to reduce development costs.

Diverse

3.2.2

Promote the development of mixed-income multifamily housing in appropriate locations with incentive zoning provisions, such as reductions in parking requirements and increased maximum heights.

H-1.2

Diverse

3.2.3

Support the activities of housing agencies in the development of affordable housing.

H-1.5

Diverse

3.2.4

Provide incentives for low to moderate income first-time homebuyers to purchase homes in Portsmouth.

H-1.8

Diverse

3.2.5

Encourage the creation of smaller housing units, such as micro-units.

Diverse

3.2.6

Encourage businesses to establish employerassisted housing programs.

H-2.2

3.2.7

Promote opportunities to reduce the development costs of affordable housing, such as through contributions to the Workforce Housing Trust Fund and donations of land for housing sites.

H-2.1

Diverse

3.4.1

Encourage mixed-use redevelopment in existing commercial areas through flexible zoning techniques such as the Gateway Planned Development option.

H-1.3

Diverse

3.4.2

Support mixed-use redevelopment of suitable Portsmouth Housing Authority properties for long-term viability.

Diverse

PORTSMOUTH 2025

DRAFT 3/24/16

H-1.6

H-4.3

III. IMPLEMENTATION

129

LAND USE

THEME

130

PRIORITY # DESCRIPTION

RELEVANT DEPTS.

TIME FRAME

2005 CODE

Vibrant

1.2.1

Adjust the Gateway Planned Development provisions to encourage desired growth.

Vibrant

1.2.2

Expand the Gateway zoning approaches to the Woodbury Avenue commercial areas.

Vibrant

1.2.3

Promote redevelopment along the Route 1 Bypass north of the traffic circle that is compatible with adjoining neighborhoods.

LU-7.3

Vibrant

1.3.1

Provide zoning and other incentives for exhibit, rehearsal and performance spaces.

LU-1.9

Authentic

2.1.1

Implement standards and guidelines to protect the character and longevity of buildings in individual neighborhoods.

Authentic

2.1.2

Incorporate design review of new structures into the site plan review process where appropriate.

Authentic

2.3.1

Require waterfront access when reviewing development proposals along waterfronts.

LU-6.6

Diverse

3.3.3

Support efforts of the Pease Development Authority to manage development in the Tradeport for the greatest economic benefit.

LU-3.1

Diverse

3.4.3

Identify locations and conditions under which live/work units can be safely and appropriately allowed.

LU-4.2

Connected

4.3.2

Complete parking demand and supply studies to determine appropriate zoning standards in various districts and neighborhoods.

LU-1.3

Resilient

5.5.1

Incorporate sea level rise projections and adaption planning into land use regulations.

III. IMPLEMENTATION

DRAFT 3/24/16

PORTSMOUTH 2025

NATURAL RESOURCES

THEME

PRIORITY # DESCRIPTION

RELEVANT DEPTS.

TIME FRAME

2005 CODE

Authentic

2.1.4

Ensure new development is designed to consider impacts of climate change.

NR-5.4

Resilient

5.1.1

Ensure that stormwater management systems do not degrade water quality and habitat value.

NR-3.3

Resilient

5.1.3

Adjust policies and standards to maximize open space and limit impervious surfaces.

NR-3.5

Resilient

5.1.6

Publicize and promote best management practices for natural resource protection.

NR-5.4

Resilient

5.2.1

Identify and prioritize undeveloped land for acquisition and preservation.

Resilient

5.2.2

Pursue open space acquisitions that create corridors and connections.

Resilient

5.2.3

Publicize public access to open space lands through maps and the City’s website.

NR-5.5

Resilient

5.2.4

Create and implement stewardship plans for major public open space parcels addressing resource enhancement and public access.

NR-1.3

Resilient

5.3.1

Implement watershed restoration measures to improve water quality and habitat values.

NR-1.4

Resilient

5.3.2

Protect and care of existing trees, native vegetation and woodlands, and identify areas for new plantings.

NR-2.1

Resilient

5.3.3

Evaluate health of wetlands and implement restoration measures where necessary.

Resilient

5.3.4

Evaluate resiliency of salt marsh wetlands to sea level rise and implement protective measures where necessary.

Resilient

5.3.5

Track expansion of invasive species, and respond and adapt to threats as necessary.

Resilient

5.4.3

Strengthen land use regulations and provide incentives for green buildings and sustainable low impact development.

NR-2.2

Resilient

5.4.4

Promote the use of low-emission vehicles within the City.

NR-4.3

PORTSMOUTH 2025

DRAFT 3/24/16

NR-3.6

III. IMPLEMENTATION

131

TRANSPORTATION

THEME

132

PRIORITY # DESCRIPTION

RELEVANT DEPTS.

TIME FRAME

2005 CODE

Vibrant

1.1.2

Enhance the quality and connectivity of downtown pedestrian facilities.

Connected

4.1.1

Update the City’s street standards to reflect current design best practices, including full accommodations for bicyclists and pedestrians.

Connected

4.1.2

Work with the state to improve major corridors (Lafayette Rd., Route 1 Bypass) to accommodate all users to the extent feasible.

Connected

4.1.3

Consider accommodations for all users in planning, design, construction and maintenance of all city road and bridge projects.

Connected

4.2.1

Implement Bicycle and Pedestrian Plan priorities in the neighborhoods.

Connected

4.2.2

Work with DOT to implement Bicycle and Pedestrian plan recommendations on state highways.

Connected

4.2.3

Work with state and regional partners to convert the former Hampton branch to the off-road route of the New Hampshire Seacoast Greenway.

Connected

4.2.4

Identify and implement off-road multi-use paths where feasible.

Connected

4.2.5

Provide bicycle parking facilities throughout the downtown and in other high use areas to meet identified demand.

T-4.3

Connected

4.2.6

Update city ordinances to enhance safety and convenience for bicycles and pedestrians in development projects.

T-4.6

Connected

4.2.7

Consider year-round weather impacts to bicycle and pedestrian circulation in the design of public and private projects.

Connected

4.3.1

Maximize the utilization of and access to existing parking infrastructure

Connected

4.3.3

Adjust off-street parking requirements to account for variables in public supply, neighborhood congestion, etc.

III. IMPLEMENTATION

DRAFT 3/24/16

T-1.6

T-4.5

T-6.8

PORTSMOUTH 2025

THEME

PRIORITY # DESCRIPTION

RELEVANT DEPTS.

TIME FRAME

2005 CODE

Connected

4.3.4

Develop strategies for determining parking requirements for large projects, including parking study requirements, shared parking provisions and site coverage maximums.

Connected

4.4.1

Provide fixed route bus service to meet emerging demands and opportunities.

Connected

4.4.2

Support the activities of state and regional agencies and continue the City’s participation with the CommuteSmart transportation management association to increase alternative transportation options for commuters, including carpooling, access to public transit, telecommuting, bicycling and walking.

Connected

4.4.3

Continue the City’s participation with the CommuteSmart transportation management association to support commuting options.

Connected

4.4.4

Support the expansion of intercity bus service to better connect Portsmouth to other cities and major destinations such as Manchester Airport.

T-3.7

Connected

4.4.5

Support the activities of state and regional agencies to promote carpooling, including the provision of satellite parking.

T-6.3

PORTSMOUTH 2025

DRAFT 3/24/16

T-3.6

III. IMPLEMENTATION

133

RECREATION

THEME

134

PRIORITY # DESCRIPTION

RELEVANT DEPTS.

TIME FRAME

2005 CODE

Vibrant

1.1.3

Promote the creation of downtown open spaces, seating areas and other outdoor amenities.

Vibrant

1.1.5

Encourage public use and enjoyment of the downtown waterfront.

Vibrant

1.4.1

Ensure that neighborhood parks and playgrounds are regularly maintained and upgraded.

R-1.6

Vibrant

1.4.2

Create additional outdoor recreational fields where possible.

R-1.5

Vibrant

1.4.3

Develop recreational trail along North Mill Pond and other transportation and utility corridors.

R-1.2

Vibrant

1.4.4

Enhance existing recreational facilities at South Mill Pond and other locations.

R-1.2

Vibrant

1.4.5

Develop a consolidated recreation facility for residents of all ages and income levels.

Vibrant

1.4.6

Plan for the development of additional recreation facilities where opportunities arise.

Vibrant

1.4.7

Support enhancements to Prescott Park and Peirce Island.

Resilient

5.2.5

Create a passive recreation program focused on expansion and maintenance of recreational trails.

III. IMPLEMENTATION

DRAFT 3/24/16

R-1.5

PORTSMOUTH 2025

PORTSMOUTH 2025

DRAFT 3/24/16

III. IMPLEMENTATION

135