AN URBAN DESIGN STRATEGY FOR THE MAIN STREET STUDY AREA, WORCESTER, MASSACHUSETTS

The purpose of this study is to identify problems and potentials related to the physical environment in the City of Worcester. This study covers a significant time period. Research for this report was initiated in 1988 and since that time many changes have taken place both in the physical environment of the city but also in the governing structure of the city. The City of Worcester is interesting because like many cities in the northeast and in Massachusetts in particular, it has a long history. In addition, its central location in the State and in the region could be valuable asset to the city in the future. The report begins with an analysis of the existing conditions in the City of Worcester. Describing the history of the City as well as current conditions this section provides the framework for the recommendations to be made in the rest of the study .1 The second and third parts of this study provide recommendations intended to improve and enhance existing conditions for a defined portion of the city, the Main Street Study Area. The area is so named because the primary thoroughfare is Main Street and because it offers conditions similar to those found in many cities throughout the United States. The Main Street Study Area like many other American, 'main street cities' has been in a state of decline for a long period of time. City officials have and continue to strategies over the years in order to mitigate this decline. Most of these plans were not visible except in written form until very recently. And so currently, parts of the Main Street Study Area are being physically transformed to coincide with the many plans developed throughout the late l 980's and early l 990's. This study looks at the history of the city, the many planning strategies adopted and physical changes currently taking place. Recommendations are made in the second two parts of the study which are intended to complement and further the progress made so far and to address areas which are currently not being improved upon. 1 The city will be analyzed the way a painter surveys a painting in progress. Each part will be looked at and worked on in order to shape it into a more unified whole.

LIST OF TABLES 10.1 Worcester Population, 1790-199010.2 Worcester Population, by Age, 1960-199010.3 Worcester Population, by Race, 1980-199010.4 Population Households and Housing Stock 10.5 Worcester Household Income, 1960-199010.6 Residential Building Permits, 1986 vu LIST    10.2 Graph of Worcester Population, by Age, 1960Age, -1990 10.3 Graph of Worcester Population, by Race, 1980Race, -1990 Vlll LIST OF FIGURES (cont'd) 10.4 Graph of Population, Households and Housing Stock 10.5 Graph of Worcester Household Income, 1960-199010.6 Graph of Residential Building Permits, 1986 In the past, the focus of urban planning has been almost entirely on the physical environment and specifically land use. This is due to the fact that the planners role grew out of traditions such as the City Beautiful movement and political instruments like zoning.
Today, though, urban planners are and must be able to deal with a variety of planning issues beyond those specifically associated with the design and use of the physical environment. The planning field has become more all-inclusive embracing social, economic, political and environmental issues as well as the many challenges associated with physical planning. Therefore, planners while trained as generalists able to participate in all areas of the planning often select an area of concentration within the larger field in which to concentrate their efforts. As specialists planners can focus on specific aspects of the field and provide alternative perspectives from which to look at what appear to be common issues in the field of planning. Urban design , one such area of concentration.
Urban Design focuses on the physical environment. Urban designers work to " ... create outdoor environments which are collective and unifying frameworks for new developments .... "2 and for new and enduring communities. Thus urban designers must develop an understanding of human behavior. And given these parameters, naturally, other issues which are integral to communities and related to the planning process such as social and political issues, become variables. Nevertheless, an urban designers primary emphasis is on the physical environment. Thus the practitioner must determine, what other issues will become part of the analysis, establishing a hierarchy to determine to what degree the issues will be utilized or studied and how they will influence the final recommendations. Urban designers examine issues, such as location and accessibility of physical elements, which directly and indirectly influence the physical environments. An urban designer often begins a study with a land use analysis. This technique provides a succinct description of the elements which make up the study area. A land use analysis identifies things such as schools, housing and recreational facilities. In addition to the types of things which occupy the land the analysis will identify two primary attributes of the area. They are location and accessibility. These attributes are the primary elements which detennine the value of the land and influence regional development patterns. This land use analysis will provide the basis for the examination of the existing conditions in the City of Worcester. Following the land use analysis, a number of other features which contribute to the making of an urban area will be described as they directly relate to the City of Worcester.

Problem Statement
The City of Worcester has been in economic decline since the late 1960's. As Federal funding for programs declined and the employment sectors dramatically changed this had a major impact on the City. Manufacturing which once had been a major employment area was now replacing manpower with machines. This sector once the largest in the City now had fewer jobs to offer. Yet the population in Worcester has continued to increase. Families continued to move to the city to be close to other family members and there was also a significant increase in the numbers of births. But the existing populations having primarily been employed in manufacturing had little education and did not make the change readily to the new emerging job sector. The City also has made the change slowly, unable to encourage new busine ses to the city or existing businesses to remain in the city. Nevertheless, two important features which have assisted in slowing economic decline in the city of Worcester are its proximity to Boston and the fact that there are a number of colleges and universities in the city.
Boston is a city with a strong economy and it continues to grow and expand. Ii is also becoming more and more expensive to live in the city of Boston. So people looking for affordable housing are having to go further outside of Boston to find homes. As a result, suburban Worcester has a growing number of housing developments and commercial services, in part due to this continuing need for affordable housing in the region as a whole. The second feature of the city is the high number of academic institutions located here. These institutions 2 continue to attract new talent and vitality into the city. It is these features and other assets which suggest that there is tremendous potential for new growth in Worcester.

Objectives of the Study and Its Sii:nificance
The City of Worcester, specifically the downtown area shown in figure i.l, will be the focus of this analysis. The city's long history and proximity to the City of Boston are two of the reasons this city was selected for this analysis. And they help to support the assumption that the city has tremendous potential to become an active and vibrant center for the State of Massachusetts. The central issue to be studied in this paper is how to utilize the available resources in the City and build upon them and add to them as necessary in order to encourage people, both residents and visitors, to take advantage of these resources. The objectives of the study are to identity the strengths of the city and determine how best to minimize the weaknesses. One of the primary objectives towards accomplishing this goal is to encourage people to come back to the downtown area to live and shop. This study is significant for a number of reasons. When the research for this study began it was addressing potentials which were not yet being realized and now the city is changing drastically and it may help guide the process of change taking place in the downtown area, currently. The approach utilized in this study is a simple process of looking at what currently exists in the city using both primary and secondary sources and making suggestions about possible ways to make improvements in the city later in the document.

Methodoloi:y/ Approach
Two basic techniques were used to complete this document, research was done of past and existing conditions and recommendations were developed for the future. A number of different research techniques were used to complete Part One, Analysis of Existing Conditions, of this study. A series of windshield surveys of the Main Street Study Area were done to identify, characteristics of the city, boundaries for the study and identify the existing land uses within the Study Area. Next a comprehensive of primary and secondary research materials was done throughout the project. This included review of the zoning codes which changed in 1988 when this research was initiated and again in 1994, the most recent changes.
Books and articles which describe historic Worcester were also studied, appreciating that a solid understanding of the past could be an asset when planning for the future. The second part of the methodology involves making recommendations for the future. Using the information collected in Part One of the study, suggestions to enhance and improve the existing conditions are given in addition to substantive and new recommendations for each district. The recommendations made in Part Two were developed using primary and secondary research of cities of comparable size which have been more successful at revitalizing their downtown areas. Implementation strategies focusing on administrative, legal and financial aspects are provided in Part Three and were selected using the literature review process.
Oreanization of the ·Study 1. Part two provides an in-depth description of the current conditions in the City of Worcester. Many methods were used to complete this analysis and profile of the city including windshield surveys, discussions with planners and officials in the city, interviews with merchants, historians and others knowledgeable about the city. In addition, a variety of historical documents, papers, books, maps etc. were collected to add to and further substantiate the information provided in this chapter. Chapter two provides the foundation for the final two chapters of the report.
2. Part three contains the elements for an urban design proposal for the City. It is divided into 3 sections. They are Design Principles, Circulation and Public Amenities and Activity in the downtown area. The recommendations made here are intended to accentuate the positive aspects of the city and improve upon the negative ones. Based upon the findings in Part Two, this section provides very specific measures which may be utilized by a variety of interest groups from city officials in the local government to small business owners.
3. Part four, the implementation plan contains tools for accomplishing some of the recommendations/strategies offered in the urban design plan. This includes administrative, fiscal and legal mechanisms needed to get things accomplished. What input from which groups 4 is needed. How much does the proposal cost? What possible financial sources exist to solve funding issues? The urban design plan and the implementation mechanisms are both needed to affect change in the City of Worcester. The plan improves the beauty and comfort of the downtown area and the implementation mechanisms allow for the continued functioning of the city to finance and coordinate changes.

PART TWO EXISTING CONDITIONS
This section of the report provides a concise description of the existing conditions in the Main Street Study Area. There are numerous factors which influence the design and functioning of a city. Some. of the ones to be considered in this part of the study include land use, circulation and open space. These issues will be described as they relate to and impact the Study Area. The problems and potential of the area should become more clear with the descriptions provided in each chapter.

CHAPTER TWO LAND USE AND ZONING
"Every city is characterized by a variety of land uses ... " (p. 273,Murphy) A basic component of the urban design process is the land use analysis. The central business district (CBD) of a city is characterized by its diversity of land uses. This diversity attracts consumers to the city to make purchases and utilize the available services which increases the tax base of a city by generating much needed economic activity. This in turn helps to increase the income and profits made by individuals, businesses and the city as a whole. Land use also has a profound affect on the physical appearance of the city. Once uses for sites are designated this can affect the way in which structures are designed including what materials a building is made out of, the organization of exterior elements such as the windows and doors, etc.
There are many land uses found in urban environment including commercial, residential , industrial activities, open space, parking and transportation routes. The land use analysis identifies how the land is (or in some cases will be) utilized. It can show past uses but more commonly focuses on existing uses of the land. Using the information from the land use analysis an urban designer then tries to predict how the distribution of uses is changing or may change in the future and plan for or facilitate needed changes. Recommendations are then made, using the information from the land use analysis, which explain how the land could better be used to satisfy current and future needs.
The land use analysis performed for the Main Street Study Area identifies current land uses and discusses the current zoning regulations which are a major determinant of how the land will be used in the future. The information derived from this analysis will be used in Part Three to make recommendations to improve the appearance of the Main Street Study Area and assist the governing bodies in the City of Worcester.
A number of methods were used in this study to examine land use in the Main Street Study Area including primary research, literature review and a windshield survey. One of the methods used was the windshield survey. Driving through the study area, the uses associated with each structure were mapped onto a Worcester building map. Each land use was assigned a color, such as red for the commercial uses, in order to simplify the mapping process and to allow for complete coverage of the area. Later more information was added to these maps during a walking tour of the city. In their completed form these land use maps provide the basis for the analysis of the existing conditions and for the planning study as a whole. The first map was produced in Spring 1989. A second land use map was produced in Spring 1996 which identifies the changes which the city has made since the study began.
While performing windshield surveys, other characteristics of the buildings in the study area were identified. These included a detailed description of each building such as its height, massing, and architectural detailing. Next, any visible problems associated with the current land uses or the building's appearance were listed so the recommendations could be made. This information will be presented in later chapters.
In addition, a literature review was done and a questionnaire for local businesses and pedestrians in the Main Street Study Area was developed. The literature review provided information about the history of the buildings here and about prior land uses. The survey allows current owners to be interviewed on a regular basis in order to obtain the most up to date information about the buildings and how they are currently used as well as information about any future plans which the owner may have for the building.

Land Use in Historic Worcester
Worcester is known for having been a major industrial city. Unlike those cities which were established as major industrial towns, Worcester followed a pattern similar to that of other Eastern cities such as Boston, Providence and Springfield. The City of Worcester began as a self-contained village but virtually over-night was transformed into a major manufacturing and commercial center. The emphasis on manufacturing and commercial activities continued until the early 1970's when Worcester's economy began to decline. But the reminders of this era are still found throughout the city in the many buildings which remain.
During the Industrial Era, manufacturing was the primary employment sector in Worcester. The Industrial Era began in Worcester around 1789 when the textile manufacturing industry began to grow. Manufacturing in general then expanded a great deal over the next two decades. But significant growth in the manufacturing sector was hindered because there was no way to provide the power needed to run the advanced machinery being developed at the time. Specifically there was no access to waterpower in the city. This problem was solved in the early 19th century, though, and then the manufacturing industry again began to grow quickly . This rapid expansion was the direct result of three important discoveries. They were the discovery of steam power, the construction of the Blackstone Canal, and the building of a substantial rail network in the city. The discovery of steam power offered another alternative in order to provide power to machinery. The Blackstone Canal was opened in 1828 linking Worcester to Providence, Rhode Island a functioning seaport. And the new rail system provided an alternative means of transporting goods to and from companies. After the arrival of these technical innovations, many industries chose to locate factories in the City of Worcester.
Industries were built along the level land of the stream valley. These linear strips of industrial and manufacturing uses crossed through the heart of downtown Worcester.
Diagrammatically, when one looks at historic maps of the city, one sees a nucleated center with small linear connectors extending away from it. Slowly major streets, highways and rail lines were built along these flood plains through what was otherwise hilly and not easily accessible terrain creating a star shaped pattern on the city map. This pattern was further reinforced by developers who also chose to build along these transportation routes.
Most industries chose to locate their facilities along the level lands of the stream valley which runs in the north and south direction through the heart of the city. This again altered the map of the City of Worcester which had now become a nucleated center from which the many transportation routes extended, see

The City Government and Land Use
The first step towards understanding the land uses in a city or region is to understand the organizations who make the land use decisions, such as the elected representatives, city administrative departments and citizens groups. In the City of Worcester, the City Council is the administrative organization which determines policy and it is presided over by the Mayor, the head of the city. The City Manager, though, Thomas R. Hoover, is the person responsible for making the day to day decisions for the city and all municipal departments report to him. The groups which are involved with land use include The Office of Planning and Community Development (OPCD) which was created in 1972 to administer the Federally funded Community Development Block Grant Program (CBDG) and provides longrange land use planning for the city. In 1985, it also assumed the administrative functions of the Worcester Redevelopment Authority (WRA) and the two offices were combined in to one.
In the early 1990's the WRA was again made a separate office as it is today and this office monitors and manages the new development projects currently underway in the city. The 3With its continued growth, the boundaries for the downtown area have become rather obscure. Thus for the purposes of this study, a specific section of the downtown will be analyzed called the Main Street Study Area. 4 The stagecoach was the primary means of transportation in those places where rail service was unavailable. The Planning Board for the City of Worcester is a five-member body which prepares planning reports on matters referred to it by the City Council or the City Manager.
Because this board is not necessarily made up of professional planners, they work with OPCD to research land use issues. The Zoning Board of Appeals, also a five member organization, hears appeals on zoning issues and makes decisions on those appeals. The seven-member Conservation Commission has a variety of duties including administering the Wetlands Protection Act of 1986 and preserving the aesthetic and scenic features of the Worcester landscape. The Zoning board and the Conservation Commission are also assisted by OPCD and the Bureau of Land Use Controls.

Land Use in the City of Worcester
Worcester is a large diverse city which encompasses approximately 38 square miles of land. The Main Street Study Area and the city as a whole is noted for the wide variety --Government entire business or perhaps just the production part of the operation away from the central core of a city yet remain in close proximity to consumers by using telecommunications systems and transportation routes. Because transportation routes are still very important to the operation of these industries, one finds most of the industrial uses in the Worcester located along the major roadways such as Routes 9, 20, and 146. The loss of the industrial base has hurt the City of Worcester and to a certain degree has diminished its importance as a commercial center in the County.
Today, manufacturing continues to decline in the Main Street Study Area, while other sectors, particularly the service sector, are growing. This trend is reflected in the current employment statistics which show that 40% of total employment is in the service and finance sectors today while only 14.1 % of the local employment is found in the manufacturing sector according to the 1990 U .S . Census data .

The Main Street Study Area
Because of the size of the Main Street Study Area, for the purposes of this report, it has been divided into three districts. Comments which apply to all three districts will be made first, then issues which only apply to a specific district will be made in the second half of the section. The three districts, the Interstate Commercial District, the Main Street Commercial District and the Neighborhood Business District were selected and delineated based upon the rate of change which the area appears to be experiencing at this time. The Interstate Commercial District has undergone the most dramatic changes while the Main Street Commercial District has undergone more balanced changes in its character while the Neighborhood Commercial District has maintained most of its original character but is still experiencing some changes. These districts were also selected because they have similar types and scales of activities.

Description of Districts
The Interstate Commercial District is on the eastern side of the Main Street Study Area and is bounded to the east by Interstate 290 and to the west by Worcester Center Boulevard. See Figure 2.4.1, the Interstate Commercial District is indicated with a blue dotted line. This district which was once primarily residential, was transformed into a center of manufacturing and industry during the Industrial Era. As manufacturing grew and became an important part of the Worcester economy, industrial uses and structures replaced existing housing units. More recently, as the manufacturing uses have declined, the industrial buildings have been replaced, although but much more slowly than the previous transformation of this district from residential to industrial. The city suffered great economic losses due to the decline of the manufacturing industry. Thus new uses have only recently been planned for this district.
The new uses are mostly commercial and service related, although some residential uses were placed in this district in the 1970' s. Parking could become a major use in the district because each of the proposed developments has a substantial parking requirement which must be met. The major use which dominates in this district currently, though, is vacant land. The largest parcel of vacant land is located between Summer Street and Worcester Center Boulevard and was recently cleared to make room for Medical City, a new hospital complex which is currently being designed. Thus there is tremendous potential and hope that this district will be revitalized and rebuilt in the near future. It seems that this district is periodically transformed on a large scale. This burdens the city economically and physically unnecessarily.
In the future, the city should strive to make this district into a place in which small scale transformations can be made to accommodate the ever changing needs of the population and society as a whole. This would provide more stability within the Main Street Study Area both economically and physically.
The second district, the Main Street Commercial District, begins at Worcester Center Boulevard and includes the area just east of Main Street. This district is shown in Figure   2.4.1 and is outlined with the red dotted line. The largest buildings are found in this district, both in terms of the massing and height. The high intensity of land use in this district immediately identifies it as the center of commercial activity for the City of Worcester. The uses found here are quite varied and include a small amount of high density residential uses, ~ ~ District Boundarys --Important Buildings k::, ,' ' HJ --Important Space institutional uses, and civic uses. Commercial uses and parking dominate in this district. There are two problems immediately evident. First, given the central location of this district, it is likely that parking, particularly the amount currently found here, is not best use for the land.
Second, there is an increasing number of vacant buildings and shops. Both of these issues will also need to be addressed.
The third district to be studied in this report is called the Residential Commercial District. Residential uses predominate in this district. And although a growing number of small commercial uses have located in this district, the residential character of this area has been maintained. This is due to the fact that these many non-residential uses have moved into the existing residential structures. For example, Becker Junior College, which is located in this district, has placed many of its departments in renovated houses rather than building new academic buildings and this has helped to preserve the character of the district.
Dividing the Main Street Study Area into three districts means that each district may be analyzed independently with specific recommendations made for a particular district in addition to the general analysis and recommendations which are to be made for the entire Study Area. A major factor which assisted in identifying and designating these districts, besides the many visual clues which serve to distinguish the three, are the specific zoning designations for which also serve also distinguish and divide the Main Street Study Area.

Zoning in the Main Street Study Area
Zoning is one of the most critical determinants of land development patterns in cities. Therefore, understanding the zoning classifications and regulations established by individual cities can assist researchers in analyzing land development patterns for urban areas.
Recently, the question of zoning for the City of Worcester was in the forefront of the political 19 EJ --Diatrfct Boundary --Important Buildinea D --Important Spaces scene in the city because city officials were in the process of updating the zoning regulations (see Figure 2.5 for the present zoning designations) When compared to the district designations made in this report one can see that in part the district designations were determined because one can see that within each district the zoning classifications are fairly consistent.

7 Zoning Classifications in the Individual Districts
Zoning is one of the major determinants, if not the major determinant of land development patterns in the United States. Therefore, understanding the zoning classifications and regulations in each district greatly assists researchers in analyzing the existing patterns and

Interstate Commercial District
Due to the changes which have taken place here in the past decade, significant discrepancies between the old zoning regulations and the actual use of the buildings could be   Village Housing project retains the RG-5 zoning designation and two smaller areas retain their BG designation at 2 and 4. This seemingly reflects the uncertainty about the potential for commercial development in this area.

Main Street Commercial District
The Main Street Commercial District is where currently the highest density of commercial and business-related activities are found. To encourage further development of this area into a commercial center for the city, the entire district has been designated MU similar to the Interstate Commercial District and in an effort to revitalize the downtown area. A small portion of this district retains the BG-6.0 zoning designation. This designation carries with a maximum floor-area-ratio (FAR) of six. Similar to the MU designation, the BG-6.0 designation allows for most commercial uses. But it restricts certain more specialized uses such as dormitories, mobile homes, hospitals, cemeteries and memorials parks. In addition, special permits must be obtained for uses such as fraternities, retirement homes, heliports and 'dedicated' storage facilities. The two specific areas which retained the BG-6.0 designation, are the Worcester Galleria complex and an interesting section on the edge of the district bounded by Chandler and Myrtle Streets on southwest and northeast sides of the parcel and bounded by McGrath Boulevard and Southbridge Street on the southeast and northwest sides of the parcel.

Residential Commercial District
This district is almost entirely classified RG-5.0 except for a small portion which carries the BG-6.0 designation. These zoning designations have prescribed height limits in addition to other restrictions some of which have been listed above. The BG-6.0 has a height limit of 200 feet or 10 stories and the RG-5.0 has a height limit of 90 feet or eight stories. A The second major development project currently underway is the restoration and renovation of Union Station into the inter-modal transportation center. Funded with Federal, state and local money, this project is now in design development with construction expected to begin in early 1997. Saving this building and converting it into a transportation center were both important decisions which could in the future serve to considerably boost the economy in the main Street Study Area and in the city as a whole. More problematic issues associated with this project relate to the some of the design of exterior spaces and the programming of the interior spaces, decisions which are currently being made. In addition to providing space for the transportation uses, needed office and commercial space, and required service spaces, the design for Union Station proposes that remaining rooms be used as conference space. The reasoning being that smaller scale conference space is needed in the city in addition to the 29 space that will be provided in the new convention center. This raises three questions. First, why wasn't smaller scale conference space integrated into the new convention center if this need exi sted? Second, how can these two centers mutually support one another rather than compete with each other? Third, is the additional conference/convention space really needed in the city? and fourth, is Worcester currently a strong enough draw to support these uses at the scales provided?
The third major construction project also underway is the new Medical Cities project, also called the Fallon/Saint Vincent Hospital project. A picture of the design proposals, from for this facility is shown in Figure 2.7. This project has received environmental approval, a site for the project has been cleared and cleaned of structures and toxic waste, and architects are currently in the schematic design/ design development phase of their work. This project could also help stimulate the local economy.
If this facility is completed it could be a tremendous asset to the Main Street Study Area and to the city of Worcester as a whole. A hospital , which is a 24 hour facility , would provide activity in the downtown area and due to the multiple needs of the many users and employees in such a facility should encourage and attract additional services and uses which are needed to support a hospital such as restaurants and pharmacies. And existing services such as the hotels would be better utilized. And beyond the positive economic ramifications, this hospital would also provide a tremendous service to the people in and around the area. Expanding the services offered by the existing St. Vincent's hospital and providing a more centralized location which is more easily accessible to more people. But like the two other developments, this facility will also provide numerous challenges. Significant issues at both the administrative level and at the design level need to be addressed.
Ownership of the hospital project has changed hands twice in the past year alone. First, the Fallon Medical Center organization, the original owners and developers of the project, was purchased by another major medical concern, called OrNda6. Most recently, 6 OrNda is an Indian name not an acronym.
30 Figure 2.7 Medical City Computer Image of Proposed Hospital OrNda was purchased by another medical services company called the Tenet Corporation. This instability at the administrative level has likely had an impact on the forward progress of this development and could potentially affect the execution, purpose and service of the facility over the long term. Thus the changes at the corporate level need to be closely monitored. A second area of concern is in the design itself. Current design proposals show a facility which is to be almost completely ' inward facing ' and self-sufficient, with all or most of the needed support services designed into the facility itself. This could considerable decrease the economic benefits which the city could and should expect from a project such as this and of this scale. The city and its residents should expect more from this development, including generating nighttime activities, encouraging residential development in the downtown and the creation of additional uses and support services in and around the area.
The contribution of the new Worcester Galleria is an area which also needs to be studied. Like other downtown commercial areas throughout the United States, this center faces difficult and significant competition from its suburban counterparts. Shopping malls such as the Auburn and Greendale Malls in Worcester County are able to provide adequate parking, a variety of goods and services, a safe shopping environment, and protection from the natural elements. These same amenities , which should be provided in the Main Street Study Area as well , though perhaps in a slightly different way, are currently not provided and the amenities which do exist do not provide enough of an incentive to compete with the newer shopping malls outside of the city. Planners have Jong thought in fact that inner city malls can not be successful. The city of Boston recently dispelled this myth when it chose to build two such malls, one in downtown Boston and the other in Cambridge. Thus there was precedent for saving the mall in Worcester despite the many potential obstacles. And in fact, the City of Worcester has benefited from the renovation of Worcester Galleria.
Once almost empty and facing an uncertain future, the mall has now been converted to an attractive outlet mall. Rather than trying to compete directly with the existing suburban malls, the Galleria now provides only outlet shops which are not currently available in the area or at the suburban malls and thus has avoided directly competing with the suburban malls offering a different product to consumers. These stores are supposed to offer similar products to those found in regular department and retail stores but a significantly cheaper prices. The attractiveness of this concept is such that one now sees these outlet shopping facilities being built throughout the Northeast. Not only was Worcester successful in attracting a potentially lucrative type of shopping experience to the downtown area but the developers simultaneously avoided having to compete with the suburban shopping malls by offering a different product to the consumers. The major problems associated with the outlet mall since it opened are the prices. Small businesses can not afford to locate and stay in the outlet mall because the rent is too high. Also the stores in the mall are mostly upper end stores which offer more expensive products. In an unscientific survey, the prices in this mall tend to be higher than in outlet center in wealthier communities in the state of Connecticut, which has recently built a number of outlet shopping centers. A better mix of low, moderate and high end stores would better serve the residents in the city of Worcester many of whom make $25,000 per year. The mall appears to cater to visitors and tourists who can afford the prices and only cursorily address residents of the city. This could be very problematic. Because the day to day business which most malls receive is from the local residents. Few shopping centers can survive over the long term by depending on visitors and tourists for their day to day business. The Worcester Galleria it seems also can not be successful over the long term if it continues to cater to visitors.
The last major change which has taken place in the downtown area is that the number of people who once lived in the Main Street Study Area has declined significantly. There are many reasons for this. Over the years, there has been a consistent decline in the amount and quality of housing in the Main Street Study Area and in the downtown as a whole. In addition, suburban areas appear to provide safer and cleaner environments as well as easy access to many services and amenities. In fact, there was such a dramatic increase in the amount of residential construction taking place in the suburban areas around the city that a one year moratorium was placed on all special permits and variances, in all residential areas from 1986 33 to 1987. These factors encouraged many residents to seek new housing outside of the city. This exodus has eroded the tax base and thus has caused a decrease in the funds available for maintenance and one result of this is that the downtown has become more unsafe and a less desirable destination. As a result, the land uses outside of the city replace those found in the Main Street Study Area (or compete with the uses here) rather than supporting them.

Summary
The land uses in the Study Area are varied but not stable. While there is some new construction which could help to revitalize the Study Area, both by creating new activities and encouraging other new developments, businesses, particularly smaller ones, continue to leave the Study Area. Housing is a very significant problem in the Study Area. Both the quantity and the quality of that which exists needs to be studied and recommendations made regarding how to maintain, improve and increase the housing stock in the Main Street Study Area. currently space does not seem to be used as judiciously as one might like. There seem to be far too many surface parking lots given the current density and commercial mix found there now. While many of these parking lots are filled during weekday business hours, these same lots are empty at other times. The highest and best use for the Main Street Study Area properties should be determined and plans made to achieve these this goal. The city should strive to maintain a strong mix of commercial uses. Small businesses need to supported, both administratively and financially , by the city in order to create and sustain such a mix. Commercial uses seemingly not addressing the needs of the residents first and instead are focusing on visitors and tourists.
It seems that in order to ensure longevity that the needs of the residents should be of primary concern since they have the greatest potential of becoming regular customers. Finally, there does not seem to be clear understanding of the potential problems associated with the many new development projects. City officials need to determine what their expectations regarding these projects are and verbalize this to the developers. Potential impacts and risks also need to be discussed on a continuing basis so that they can be avoided.

CHAPTER THREE BUILDING FORMS AND FACADES
" ... every building needs to be subordinate to the overall blueprint -that is the scale and the architectural vocabulary must harmonize with the existing public space." (p. 73, Trancik)

Introduction
The buildings in the City of Worcester are an interesting combination of the past and present. The three districts specifically analyzed in this study simultaneously offer three different perspectives of the city itself. project and designs should fully take into account not only how the building will be improved and changed but also how the changes will impact and/or transform the appearance of the block and the city as a whole. The Residential Commercial District offers much of Worcester's old charm. But while it is still mostly residential, it also contains a growing number of commercial uses which are primarily distributed on the eastern side of the district next to the Main Street Commercial District. Decisions need to be made concerning how many more commercial uses will be added to the area.
How the residential uses will continue to coexist with the commercial uses and how to improve the overall character of this district. One of the most pressing needs in this district is to preserve some of the existing structures in this district. There are many structures while not historic, they are structures which have historic value. The City needs to develop substantive strategies to preserve these buildings and uses. In addition, the local administration should consider developing a program which would encourage individual owners to maintain and when necessary rehabilitate their own buildings. Such a program should provide basic courses which emphasize and illustrate how to calculate and determine the ·value of property using a variety of indicators and variables, courses which provide instruction about simple improvements which can be done either by the owner or when it is best to hire a professional, and courses which discuss financing options, such as available loan programs.
This chapter describes the scale and the architectural vocabulary of the buildings in the Main Street Study Area. Having provided a two dimensional image of the city using the text and maps, this chapter will look at the Main Street Study Area as a three dimensional entity in order to provide a complete picture of how urban space in the area is defined. The term building form is used here to describe the physical presence which structures have on the street, the basic outline of a structure, its length, width, height, lot coverage, massing and setback amounts. These building characteristics will be described in this chapter along with details which distinguish the buildings from one 36 another including fenestration types, architectural detailing and building materials.
These factors determine what the buildings in a city look and thus impact the appearance of the city block and image of the city as a whole. While most buildings have four or more facades, the focus of this section of the report will be the front facade or on those facades facing primary streets, which will be referred to as the primary facade. Specific details of the other facades will be mentioned as necessary.
The facades of buildings, the exterior walls, determine what it looks like. The overall appearance of a building is determined by its size and the placement of window and door openings, the materials used, and the architectural detailing utilized in the design. The recommendations made in this study will provide general guidelines which can be used toward improving all exterior faces of the buildings in the Main Street but specific suggestions will primarily focus on the front facades of the buildings which directly influence the overall appearance of the street. This could be used to generate a set of guidelines for future building and renovation in the city.
Using the information collected during the windshield survey, this analysis of building forms and facades was developed. The study looks at the city from three vantage points in this chapter. First, Main Street Study Area as a whole, next it looks at individual city blocks and finally individual buildings are identified. Having identified those buildings and individual elements of the buildings which contribute and detract from the appearance of the study area, appropriate guidelines can be developed for enhancing the positive aspects and improving the negative ones.

Worcester Today
Today, there is less consistency in the overall composition of the city. New technology and innovation in the building industry have increased the types of materials There are also residential structures and civic buildings and spaces which reflect both historic Worcester and the Worcester of today. Many of the newer buildings stand in direct contrast to the older buildings in the city both in terms of overall appearance and massing. This contrast can be positive but many times it is negative, detracting from the overall appearance of the City as a whole. The purpose of this chapter is to identify the visual affects of the buildings from three vantage points, the city as a whole, the city block and individual building footprints.
The Main Street Study Area, as a whole, has a high level of visual coherence to it. Any inconsistencies which exist between individual buildings are minimized by the overall image of the city as a cohesive whole. The hilly terrain provides the careful observer with many views of the city and views to surrounding areas when in the city.
From the west one looks down onto the city from the east one can either view the city from above on the interstate or at ground level. From the north and south the views are tempered by building facades down the long streets which have this orientation.
Closer inspection of the buildings in the city show that there is a fair amount of variation in building height in the study area which creates a rather dramatic skyline from a distance, see Figure 3.3, and identifies this area as the downtown. But because there are actually very few tall buildings in the downtown area they do not adversely affect the micro-climate at the street level by generating high winds or blocking sunlight there. The fact that most of the buildings in the Main Street Study Area range in height between one and seven stories, also contributes to this urban environment. The Partial View of Worcester Skyline Taken from Interstate Commercial District coherence and allows for easy, visual transitions to the other blocks and areas in the city. In addition, except in a couple of cases, there is enough variety in terms of building heights to prevent a specific building from dominating a particular block or area in the Main Street Study Area. The two high-rise buildings which do exist dominate the skyline to a certain extent but do not overwhelm the city. The buildings along the edges of the Main Street Study Area also have an important quality. They at once have substantial presence to assist in defining the edge of the Main Street Study Area and simultaneously allow for clear visual transitions to other parts of the city of Worcester. Nonetheless, each district does have distinctive buildings which give the district its own character. These will be described in the following sections of this chapter.

The Interstate Commercial District
The building forms and facades have varied great deal in this district due to the many changes which have taken place here. The two things which seem to have had the most significant impact on the area in the recent past include the construction of the Interstate 290 Highway and the urban renewal which continues to change the face of this district. Interstate 290 creates a hard edge condition between this area and the more the residential part of the city to the east of 290. While in other cities the construction of a major highway through the city has destroyed and divided large portions of the city.
Worcester has been more fortunate in that the Interstate, while still divisive, seems only to have reinforced an existing edge which had been developing in the city for a number of years. Thus at least in the Main Street Study Area part of the city of Worcester there seem to have been fewer detrimental effects due to the Interstate, than perhaps in other areas or other cities. The one detriment of having the Interstate so close to this district is the ability to create a reasonable scale in the district. The speed with which cars move along Interstate 290 and the overall size of the highway make it very difficult to relate to a pedestrian level. Thus buildings which have been built here tend to be larger, because there is more land available in this district and because, there is a need to respond to the looming and large raised highway which is adjacent to the district. Unfortunately, these developments continue to be built in isolation. Each developer choosing a desired style with little consideration for the existing context, or the other, although few, buildings which are located here. Also the developers are not providing the smaller scale elements and amenities, such as trash containers, pay phones, and benches which would hopefully encourage pedestrian use and make it more attractive and pleasant for all users as the district becomes more dense and populated in future.
Urban Renewal, on the other hand, has had the same effect that it has had on most cities, namely of creating many vast and vacant areas within a city and within this district in particular. Most of the urban renewal sites still remain vacant in this district.
More disturbing though, is the fact that that which does exist in the district is vulnerable to removal at any time it seems. The result of these two factors and other factors, is that this district is very inconsistent in terms of building form. The buildings which do exist are separated by the numerous vacant lots/parking lots which are present here. Thus there are very few references for developers to look to when building new structures or renovating older ones. The one common aspect of the buildings in this district is that they tend to be constructed out of masonry. Both new and older structures tend to concrete or brick, reflecting the adjacency to the highway and the need within this vast area to give the building a presence not only on the individual street but in the district as a whole. The buildings generally low in height one to seven stories. The one exception being the Plumley Village Housing complex which has a couple of high-rise towers. Boulevard this hospital will be approximately 625,000 square feet offering 378 hospital beds. The few references and the fact that there are few scale changes, there are only large scale elements, in this district has left each developer to establish its own set of design guidelines or standards. While potentially risky these structures also could be the structures which help to tum around this district and the Main Street Study Area as a whole. These new building keeping within the central coherent factor of the district are masonry, varying mixtures of brick and concrete. The convention center is approximately 5 stories which serves to continue lines of adjacent buildings. The design for the hospital complex, thus far appears to be approximately 7 stories, but current design proposals make it appear that it could be significantly taller.
The Interstate Commercial District currently has numerous vacant lots. Some of these properties have been fenced to prevent vandalism and loitering particularly on those properties where new developments have been proposed. Many of the older buildings in this area were sacrificed to make room for the newer complexes currently being developed. A few older buildings remain which it can be assumed given the extreme devastation of the area, the city hopes to keep in tact. They include a renovated industrial building, a commercial use, the Plumley Village Housing complex and an important historic structure the original Worcester Train Station building which will be referred to as Union Station hence forth.

.4 .1 Union Station
Union Station was designed by Philadelphia architect Samuel Huckel Jr. and In the late l 980's, city officials considered tearing the building down fearing that it was far too expensive to renovate or restore. The main problem which the city had to address was whether an appropriate and viable use could be found for the building. And although the building had been allowed to deteriorate up to this point, it has always been a positive visual addition to Washington Square and the City of Worcester as a whole, reminiscent of historic Worcester. The fine detailing, craftsmanship and construction of the original structure have contributed to the longevity of this building. The Union Station building also provides a strong edge for the district. It is large enough to address but not compete with the highway adjacent to it and Washington Square offers convenient access to the Main Street Study Area. Given the buildings proximity to the highway and the fact that it is a major entry to downtown , this building is an excellent location for a new transportation center.
Fortunately, they chose not to demolish the original structure and the building is   Transportation Center for the city. Being near the highway, should encourage use of this facility by people outside of the city, but the fact that it is in walking distance of the downtown could encourage travelers to utilize the goods and services there. The building had become a place where homeless people lived and with its partially exposed roof and walls it was a danger to the community. The building has been secured now so that rehabilitative efforts can begin. A central part of Worcester's past, it has potential to become an integral part of the city's future also.

4. 2 Plumley Village Housing Complex
The Plumley Village Complex, Figures 3.6 and 3.7, is the one set of buildings which will most likely never become a positive visual addition to this district or the City of Worcester. The notion of a entirely low-income housing complex has been rejected by most housing researchers as an impossible way to provide homes to people and reintegrate them into society. There is little incentive for tenants in such complexes to maintain the apartments and they often end up looking as Plumley Village looks today.
The Plumley Village complex has 15 hexagonally shaped buildings. These buildings seemingly were intended to create visual interest in the area. What was built instead were unusable spaces and corners on the interior of the units. This is a problem seen in numerous housing projects throughout the country.
The use of unusual shapes in low-income housing not only creates unusable space but also serves to alienate the residents. In the past, little attention was paid to design details such as the number of closets, the amount of storage space and the number of bedrooms provided in these projects. Instead, designers seemingly were more interested in making interesting objects (buildings). And when the spaces mentioned above did not meet the needs of the tenants, it became impossible for the  Therefore, in housing projects across the country, the grass was not tended to and after a time no longer grew and the trash in these open areas was not collected. Plumley Village, while not as dire as other housing projects across the country, has some problems. At the urban scale this project does little visually to contribute to the district as a whole. The building forms are too distinct they are set too far away from the street for this urban location.

4. 3 Other Buildings
The many vacant lots in this district increase the visibility and the perceived importance of the few buildings which are located here. Thus buildings which normally would not be the focus of a discussion of this district, but instead would be grouped with other buildings in more dense areas for a discussion about a block or portion of the district, have greater importance and have become defining elements in this district.
Some of the buildings found in this district which have this elevated level of importance are the Worcester Post Office, the Visiting Nurse's Association building, and the Worcester Police Station. Although not distinctive architecturally, they currently are the structures which help to define this district. As a group, these structures have few similarities in terms of architectural style and detailing, but these buildings do have similar massing and do utilize similar materials. And it is these similarities which begin to unify the district and could provide design clues to guide developers in the future.
Identifying and understanding the similarities and the differences between the existing structures in the district could be beneficial to future planners and developers doing projects in this district. This information could help create new buildings and blocks within this district which are related to one another and woven into a unified pattern, rather than constructing more singular buildings.
Some of the similarities which exist between these buildings are as follows : First, the massing of the buildings tends to be fairly large. The footprint of these 55 buildings is typically large occupying all or most of the available lot. Also, these buildings typically have between one and five stories. These buildings have a strong presence in the district due to the large building footprint and the moderate number of stories which the buildings tend to have. Thus buildings such as the Worcester Post Office and the Worcester Police Station make a strong statement allowing the to be seen and compete with the raised highway. Similarly, these buildings are not so large that they would overwhelm smaller uses which exist or could be constructed in or adjacent to the district. Uses such as smaller residential or commercial businesses. In addition to the definitive massing, most of the larger buildings in this district are masonry buildings, brick or concrete, which reinforces the powerful massing. And because they are surrounded by vacant lots, they appear even more grand and object-like. These setbacks could be a characteristic which is integrated into future developments, but needs to prescribed, not becoming too large and antithetical to the urban nature of the district.
The new Worcester Convention Center and the soon to be built hospital are two large projects which will help to fill much of the existing vacant land in the district. The 56 Convention Center, which is almost complete, is a steel and masonry building which has glass integrated into the facades. This will be beneficial in the effort to encourage pedestrian use of the area and helps to minimize the scale of the building. The building, though, unlike others in the district, is not setback from the street edge. This is perhaps appropriate for the use of the building and will not be problematic as long as a pattern can be defined for and integrated into the district. The design for new hospital complex also currently calls for steel and masonry constriction. But there is a substantial setback proposed in the latest drawings, which if properly proportioned could help to minimize impact of the convention center which does not have a setback at all. Looking at the pictures, though, the setback could be too extreme to allow this facility to be properly integrated into the district. The designers of the hospital should carefully consider the setback amounts around the facility as a whole and the height and massing of this building so that it can be integrated into the pattern which is evolving in the district.
Having a strong massing and carefully utilizing minimal setbacks could be successful for this district given its location and the types of uses which currently exist here and the uses which could come in the future.

The Main Street Commercial District
The buildings form a continuous wall which helps to define the exterior spaces created by the streets, pathways and other open areas found in the city. The buildings form walls which define these exterior spaces. This spatial definition is further enhanced by the architectural detailing and decoration on the facades of these buildings.
The height of the buildings in this district contribute to the "urbaness" of the district.
The buildings here range in height from two to twelve stories having an average height of anywhere between four to six stories. These building heights when seen from a distance create the image of the city and stress the intensity of the land uses found in this district. Once in the downtown area the sense of city is further stressed as the buildings effectively work together creating a sense of enclosure. But the variation in building heights allows is indicative of the fact that Worcester is a medium-size city and allows for connections between the two adjoining districts. These variations in building height reflect the many advancements made in technology in the past decades.
The more recent buildings, dating from this century are taller using the more modem Mechanics Hall Rear Elevation pedestrian scale which encourages pedestrian use of a city and make the pedestrian feel at ease walking by. But even those buildings which do not have blank walls lack detailing which mediates the various scales which need to be negotiated in a city, including the block scale and the pedestrian scale. The new high-rise residential tower is one such example. It has created ground floor shopping but has raised its ground floor above the actual street level which required that a wall be built at the street level.  View of Urban Villages 80 Unit Residential Tower functions more like a wall than a window. The reflective glass is not comfortable for pedestrians or users on the inside who are never sure whether someone can actually see inside or not. The park which was built at the same time as and adjacent to the Fleet building, occupies a central location in the city. But it has been fenced off in a manner that discourages pedestrian use, so it is almost always empty. The interior of the Fleet Bank Building is also confusing and thus rather alienating, not offering the type of comfort or clarity which help to improve the quality of interior or exterior spaces. In general, today, developers fail to take into account the enormous responsibility which a single building has in a city. The older structures in this district contribute most to the overall appearance of this district, although some are not well maintained, because they address all three urban levels.
Buildings constructed in an urban context have three levels of responsibility, and all three levels must be addressed in some fashion for the building to successfully contribute to the overall appearance of the area. The first level of responsibility is the most obvious and that is at the level of the building itself. The building should be designed to satisfy the needs of the clients and users of the building and create a viable interior spaces. On the exterior the building both address pedestrians and motorists, but pedestrians should be the priority in dense districts such as this one. The second level of responsibility is to the block as a whole. Many buildings do not occupy an entire city block but rather have other buildings on either side of them, particularly in dense urban district. Thus the building, while not necessarily mimicking adjacent buildings should enhance rather than compete with adjoining buildings and create an overall pleasant block environment for pedestrians and a attractive image for motorists. Finally, at the third level, the building is responsible to the area as a whole, to contribute to the overall character of the city. While a grand gesture may not be made at each level, a building contributes to the overall effect at all levels and thus each level must be considered and designed for. The density of this district, the numerous historical buildings, the scale changes which address both the pedestrian and the motorist, and the generally consistent amount of the setbacks of the buildings here are perhaps this districts strongest assets . By maintaining these areas of consistency, diversity in other areas such as in the building heights, materials etc. can be accommodated while still maintaining the coherence of the district as a whole.

5 .1 Worcester City Hall
Worcester City hall is not only an important and central building in the Main Street Commercial District, it is a center for the city as a whole. A beautiful example of the American civic architecture, its fine detailing and craftsmanship from the early 18th century the building exemplify the historic architecture in the City of Worcester. The front facade which faces Main Street is a magnificent stairway which was intended to allow people to process into the building, similar to buildings seen throughout Europe. of facilities, both to improve the appearance and the efficiency of the structure. Special care needs to be taken in terms of preserving and restoring the details of the building but efforts to incorporate new technology and the extensive amount of wiring which comes with it need to be studied. Renovation of the building is about to begin but it is unclear how the technological aspects of the renovation are being handled. The exterior of the building also needs work given the discoloration of the stone and the generally poor maintenance over the years.

5. 2 Mechanics Hall
Mechanics Hall is one of the more interesting buildings in the city of Worcester because it is one of the few buildings which successfully combines historic and modem architecture. When the building was renovated and a new addition built, the architect understood the importance of maintaining the existing character of Main Street and the need to further enhance the exterior environment by providing pedestrian amenities. On the exterior of the building thus is where the addition was placed and here more freedom of expression was allowed. The result is a building which melds two very different architectural styles in a positive way. The new exterior piece has helped to activate the back facade of the building making it attractive and inviting.

Residential Commercial District
The residential commercial district perhaps has the most diverse forms of all the three districts yet it is the most cohesive of the three. Having the most diverse uses, there are some commercial uses, civic buildings, and a large proportion of residential buildings. This has created essentially three different building types which can be categorized as commercial and public buildings, commercial buildings which have a residential character and residential buildings.

6 .1 Commercial and Public Buildings
These structures include the Worcester Art Gallery and commercial uses including such as AT&T telephone company and a nursing facility. These buildings area typically newer but have maintained the qualities of the district by adhering to established patterns of height and setback. The buildings in this category tend to have a larger building footprint and fewer stories. This change in massing allows these buildings to coexist with the many small homes without overwhelming them or the district as a whole. See Figure 3. 11.

6. 2 Commercial Buildings with a Residential Character
These buildings were originally built as residences but over time have been converted into other uses. These structures tend not to house retail uses but instead

6. 3 Residential Buildings
The majority of the buildings in this district are residential. And many of these buildings are single family houses. Many of these structures date back to the early part of this century and some to the previous century. There is a wide variety of house types While diversity is potentially an asset it can also be a detriment to a neighborhood.
Some structures on Linden Street such as the large, concrete apartment are Jess attractive, but the large trees and plants help to minimize the impact of these buildings on the street. In general, though, these buildings is too large and the materials are too distinct and severe to be adequately integrated into this district. The strength of the neighborhood has been maintained to this point but if additional housing is built here which does not consider scale and/or materials the appearance of the district could be affected.

7 Summary
There is a great deal of diversity within the Main Street Study Area. Building facade styles, building materials and even dates of construction vary greatly in the districts. Elements which help to unify the districts include the building heights, the building setbacks and the number of trees found in the area, all of which can help to Residential Commercial District Commercial Buildings obscure significant differences. The building heights in the three districts seemingly vary greatly but there is consistency in specific areas within districts that not only help to unify the district but also allow for smooth transitions between adjacent districts. The larger buildings on the edge of the Residential Commercial District are integrated within this district itself but they also help to make a smooth transition to the Main Street Commercial District. The residential uses to the far west of the district help join this district to the next residential neighborhood further to the west.
The setbacks in the Main Street and Residential Commercial Districts are fairly consistent and further enhance the quality of these districts. It will be important in the future that a standard setback amount be established for the Interstate Commercial District. This will help to knit the district together in a coherent and unified way.
Because there is the potential for a greater diversity of land uses in this district than are perhaps found in the other two districts, it is also possible that a greater variety of setbacks could be accepted here. Nevertheless, a standard setback amount will provide a general guide for developers and builders initially. For example, buildings with residential uses could have larger setbacks than those buildings which have commercial uses in them. Site design, building design and quality of construction will need to be emphasized in this district in order to ensure that it will never again be necessary to tear down a significant portion of the district in order revitalize the area.
Each district has potential if the existing problems can be solved and future ones Area. This will allow the city to be seen by both residents and visitors as complex mix of unique elements within a coherent and unified structure. Introduction Automobiles provide people with reliable and efficient transportation to and from various destinations. Unfortunately, in addition to the many conveniences automobiles afford individuals they also tend to impact the environment in a negative way. As in most cities the automobile continues to provide the most significant and pervasive problem for the city because the number of cars on the roadways continues to increase and the impact physically and environmentally is significant. Since their introduction, automobiles have dominated the urban and rural landscape. Not only a result of their physical presence, but automobiles affect future planning initiatives in towns and cities throughout the United States and have in fact the focus of community plans and designs. A great deal of planning had to be done to accommodate cars into the urban environment and that continues to be the case today. Therefore, improving circulation and parking in an urban center is an important part of the urban design process.
Downtown areas had to be changed significantly in order to allow for automobile travel. The most significant change was the widening of the streets. In order to do this in most already developed downtown areas, it was necessary to reduce the amount of sidewalk space and remove many or all of the pedestrian amenities which once had been provided there. The faster speed required additional and in many cases larger signage than once had existed in the city. The growing amount of signage, both directional and commercial changed the appearance of cities, often for the worse. Highways were introduced to allow motorists to bypass the city and to further alleviate the growing traffic problem. But automobile traffic continues to be a problem in urban areas. In addition to the congestion, they increase pollution levels in the city, obscure views of open spaces and buildings, create parking dilemmas and deter pedestrian usage. In fact, the accommodations made for the automobile have systematically made downtown areas less desirable for pedestrian use and less attractive overall. Thus it is a 72 responsibility of urban designers to mediate between the needs of pedestrians and motorists, to make the city safe and attractive for all modes of transportation. Today one of the first considerations with any new development is the impact on the traffic patterns. When initiating a design proposal, designers immediately determine the amount of space needed for parking, loading docks, roadways etc. and pedestrians' needs often are considered secondarily. For example, the Union Station project has already determined that a new four-way intersection will replace the circular park which exists now. This is due to the traffic expected to be generated by train station but also the traffic anticipated by the new Medical City/Fallon Hospital project. It is still uncertain what types of pedestrian access ways will be provided with this project, although it is expected that an above ground walkway incorporated into the design at some point. As stated previously, the Fallon center has yet to offer a new design proposal to the city for review.
Worcester has a variety of transportation modes but they are not as efficient and organized as they could be and thus not utilized to their fullest potential. In addition to cars, there are intracity and intercity buses and trains which service the area. Intracity bus service in Worcester is operated by the Worcester Regional Transit Authority (WRTA). There are a number of bus routes within the system which assist students, the elderly and working people as they move through the city. Intercity Bus service is provided by a number of bus companies including Trailways and Greyhound. Intercity Rail service is provided both for passengers and freight in and out of Worcester. The passenger service is provided by Amtrak which makes connections to cities such as New York City and Albany. Commuter rail service offered by the

MBT A (Massachusetts Bay transit Authority) began in the Fall of 1996. This connection with
Boston could greatly improve the desirability of the Worcester area for working and living.
There is tremendous potential for this area to become a desirable residential and commercial area again given the growth and development which has taken place along other rail lines.
Having this alternative to driving provides another incentive for individuals who are choosing living areas, and places to work. The commuter rail links could potentially spur a great deal of development in and around the Worcester area.
Currently though the alternative transportation modes are not as well utilized as they could be in the city. The new inter-modal transportation center should help to consolidate and improve the services which are offered and forge the city into a destination and travel node for many passengers.

Vehicular Circulation in the Main Street Study Area
The circulation system in Worcester has elements which both contribute to and detract from the city. In general, those unfamiliar with the Worcester will find driving through the city motorists. In addition, each street has a different character and spatial quality and these characteristics are determined by the size of the street and the density of the uses and the buildings along the street.
There are a number of problems in the Study Area related to circulation. First, there is a very unequal distribution of cars on the roadways. So there are many cars traveling on certain roads and very few cars traveling on others. The appearance of the streets is another problem faced by the entire study area. In general there are very few trees, or other amenities on the streets of Worcester. The lack of such amenities not only detracts from the overall appearance of the street but discourages use by pedestrians. Circulation in downtown Worcester is complex for a number of reasons. First during certain times of the day there is a great deal of congestion on many of the streets. Second, many of the streets in the downtown area are one way which forces drivers to take often circuitous routes to get to their destinations. Third, the street lights are not adjusted for peak hours of traffic. Lastly, congestion is a major problem in the study area. Clearly streets such as Worcester Center Boulevard were created to alleviate some of the congestion on the older roads but the limited uses found along this route and the types of uses found there generate traffic at specific times. To date this street is underutilized, still a feeder road to areas where there is more activity. Even when there are events at the Centrum this road is not used to capacity because many users choose to park before arriving at the Centrum and walk there.
Vehicular circulation is also problematic due to the condition of the streets in the Worcester Study Area. The streets are not well maintained and many streets need repair. The harsh climate in this part of the country, heavy snow and rain as well as hot and humid weather makes it essential that the roads be maintained. There is an overall lack of coordination to this maintenance. Streets such as the circle in front of the old train station have recently been re-paved although three years from now it will again be dug up and the whole intersection redesigned. There are other streets, in greater need of repair, in the city which could have been re-surfaced.

Parking
Parking in the Main Street Study Area is ample as shown in underutilized. There is significant use during business hours but generally the lots are underutilized at other times because the city as a whole is under-populated after business hours and on weekends. There are some basic problems with the existing parking. First many of the parking facilities do not offer the sorts of amenities that encourage use except for people employed in the area, such as reduced parking rates for short term parking if a stamp from a shop is obtained. Second the lack of amenities further enhances the sense that these are not safe facilities. Lastly many of the lots are unattractive additions to the city.

4 Buses and Train
There are two types of bus service offered in Worcester today. There is the intercity buses operated by the WRT A. They provide local bus service to residents and visitors 77 \, ~ 0 tl throughout the city. The service according to passengers is fairly reliable and generally on time.
And over the past five years the routes have remained virtually unchanged . is important to evaluate the routes and see what adjustments are needed. The bus costs $1.00 for ones initial ride and transfers are $0.10. Buses are the most efficient mode of transportation offered by any city and can be a good alternative to automobile use in the downtown area. Currently most people working in downtown drive to work. Thus it seems that more research is needed in order to encourage people to utilize this system more. There is a strong network of buses running through the Worcester downtown. This provides an integral mode of transportation in the downtown area since it is the only means of public transportation offered in downtown Worcester. The bus system serves a variety of age groups but is particularly patronized by the elderly and the young people in Worcester. Many business people do use buses to get to work but the majority seem to drive?
There is both passenger and freight train service in the City of Worcester. And based upon current proposals as well as figures from Amtrak rail service could continue to expand in the future. Currently, Amtrak provides passenger service to a variety locales including New York, Springfield and Albany. Ridership, although somewhat steady over the past five years, declined by over 2000 people 1988 and 1996 according to the Amtrak consumer information.
The commuter rail is operated by the MBTA (Massachusetts Bay Transit Authority) and offers limited service between Worcester and Boston. Service was scheduled to begin in the Fall of 1994 but it did not actually start until Fall 1996. There are three morning trains to Boston and three mid-afternoon trains back to Worcester. Beginning with morning and afternoon service, it is expected that in the future commuter service could be offered throughout the day. Freight service operates to a number of the local businesses using some of the same tracks as the passenger trains.

5 Interstate Commercial District
Circulation is the defining characteristic of this district, specifically the streets and cars.
Unlike the two other districts, there is little public transportation in this area and the streets (and parking areas) are very broad. The streets which run east and west through the district such as Central and Vernon streets provide access to and from the highway, Interstate 290. These are most heavily used for business travel and thus one finds little traffic there on weekends and holidays. These roads are not the typical connectors. Generally, planned arterials which provide the major access into and out of a downtown area from a highway would have some basic characteristics. They would be wide enough to accommodate the necessary traffic, perhaps having two lanes of traffic in each direction, they would have services and uses along them which would assist motorists but not hinder the flow of traffic. They would be attractive additions to the city, foreshadowing what one is to find in the city itself. Vernon Street is problematic in that it is not wide enough to both accommodate the many uses along it as well as provide access to and from the highway. Many people double park along this street in order to access the many businesses located here. This interrupts the flow of traffic. In addition driving is treacherous along this road since there are many potholes and bumps along it. There is little if any directional signage and the signage which is available is difficult to read. Central Street is unusual in that it offers enough travel lanes for traffic but has very few uses along it. Thus it is underutilized after business hours. Similar to Vernon Street it has poor signage and is not an attractive addition to the city currently offering few amenities for pedestrians or motorists.
Another important transportation route in this city is the rotary in front of the old Union Station building. This series of roads is important in that it currently provides access from the residential neighborhood to the east, into and out of the city. The rotary itself was re-paved by the city last year. But due to the potential traffic generated by the redevelopment of Union Station, designers are considering removing the rotary and replacing it with a four point intersection. The lack of coordination suggests that options be carefully studied and presented before a final decision is made.
The main roads running in the north/south direction act as connector roads between the residential areas which bound either side of the city. These roads are unusually wide made specifically to accommodate the traffic generated by the Worcester Centrum. With the construction of the new hospital facility and the addition to the Centrum, and the expected additional traffic generated by the renovation of the Worcester Galleria_, although underutilized now the streets could have a very important role in the future.

6 Main Street Commercial District
One They include: the limited use of the area by pedestrians most people choose drive into and around the downtown( too many cars and too few pedestrians), the timing of the traffic signals and the on-street parking, the delivery trucks making deliveries to the various shops and offices in the area.
As noted in a preceding section of this report, pedestrian use of the Study Area is limited because many of the public amenities which once were provided on the sidewalks and other pathways in the downtown area are no longer found there. Thus the streets do not 83 encourage a great deal of pedestrian use. So, instead of parking in a parking lot and walking to various destinations along Main Street and on other streets, people choose to drive to each place they want to go. In addition, along some streets, there is limited on-street parking to accommodate the short-term visitor but in many cases parking directly in front of the building is not available. When parking is unavailable, many people will park illegally in front of a building rather finding legal parking further away and walking back to the building. This

7 Residential Commercial District
The circulation in this area works relatively well. The main problem seems to be the overall condition of the streets. They have not been re-paved in many years according to the traffic department. According to a representative in the Traffic Department, the city of Worcester does not have adequate funding to re-pave the streets as needed. Instead, developers proposing new construction or the rehabilitation of an existing building or parcel of land are encouraged to re-pave those streets which are adjacent to or will be impacted by the development. There is little remaining space in this district for new development and thus the city is going to have to make great efforts to raise the funds necessary to maintain and upgrade these streets as needed.
The street layout in this district appears to be quite functional. There are a couple of unusual intersections created by too many streets coming together and weaving around existing buildings. One such intersection is the intersection of Linden, Chestnut and Harvard Streets.
Although it could be improved, the fact that there is minimal traffic on Harvard Street and that the intersection is mostly green space helps to make it more successful than chaotic. The one way streets in this area Chestnut and Linden Streets, function in a positive way. They allow business traffic to occupy this edge of the district and move with out impediment through the area. It also creates an additional buffer from the more residential section of the district to the east. In general the streets in this district are well utilized and not too over-burdened with vehicular traffic despite poor road maintenance.

Summary
Circulation and parking will continue to be very important factors in planning for the Main Street Study Area. Currently the roads in general are not as functional and attractive as they could be. The general lack of landscaping elements the poor condition of many of the streets detract from the appearance of the Study Area and can hinder the flow of traffic. The Main Street Streetscape Program will improve Main Street and some adjoining streets to a certain degree but maintenance will be very important. Plans need to be made for the Study Area as a whole though which could be perhaps initiated over time.

CHAPTER FIVE PEDESTRIAN WALKWAYS AND AMENITIES
'' ... successfully pedestrianized downtown retail districts attract significant additional spending because they are an integral part of a functioning central business district..." (p. 142, Garvin)

.1 Introduction
The Main Street Study Area, as it has already been noted in previous sections, caters much less to the pedestrian than it once did. The impact of the automobile has been great, providing an efficient and effective means of transportation. But to accommodate automobiles, streets had to be widened, signage enlarged and increased, and traffic signals put into place and parking facilities had to be constructed. These modifications requiring significant amounts of space necessitated the removal of much of the existing sidewalks, street furniture and landscaping in the area. Slowly such amenities retained a lower and lower place in terms of the allocation of funds and people were less inclined to walk in the downtown.
Road improvements became a number one priority for city administrators and parking close to

2 Interstate Commercial District
The public amenities found in this district are scattered throughout the district, randomly placed rather than placed where they are needed and most efficient. Trash containers have been provided by some businesses which provide take out food or other such items.
These businesses specifically the Honey farms Market and the Donut Shop have placed trash containers adjacent to their entrances so they are more readily accessible to patrons of these establishments. An additional trash container has also been placed at the comer of Central Street and Summer Street. Having seen both motorists, although it can be extremely dangerous to stop along this street, and pedestrians use this container it is apparent that there is a need for amenities in this district. These amenities need to be planned for during the design phases of the proposed projects in order to ensure that they are integrated with current proposals.
There are approximately 12 benches located in this district. Five of these benches are located in the Washington Square Park, which is scheduled to be removed with the renovation of Union Station. These benches are not easily accessible but seem to be used on a fairly consistent basis by residents and visitors. There are very few other benches found in this district. Approximately three benches have been integrated into the wall on the west side post office parking facility from the street. This is a successful screening unit and is the only example in the city showing how public amenities can be designed in with other amenities.
Currently, these benches are not used to their fullest capacity primarily because there is very little pedestrian traffic along this part of Summer Street. Also there is no reason for people to sit here currently, there are few attractive views and little activity around this location. One could picture people using these benches to sit and have lunch or to wait for a bus but the surroundings currently are not pleasant enough to encourage people to walk and sit here. There are too many vacant lots which are not well maintained or simply covered with dirt. The other benches in this district are located next o the Union Place parking lot. Seemingly these have 87 been placed here for employees of this complex. Also a place for them to sit and take a break or have lunch.
There are no trash containers or telephones in this district. Street lighting is found on the primary roadways such as Worcester Center Boulevard and Summer Street but not on the secondary roads. There used to be more green spaces in this district, but now there is only one, Washington Square Park in front of Union Station. Thus for there to be an additional green spaces added to this district it will be necessary for them to integrated into new development projects or the city will have to reclaim some of the land which is currently held

3 Main Street Commercial District
There is very little street furniture or landscaping to be found in this area. The at any of the other bus stops in this district, not even across the street in front of City Hall, it seems likely that these were placed here to discourage passengers from sitting on the grass in the Fleet Bank Park since it is fenced off. Lighting fixtures can be found on all streets in this district. Unfortunately, these fixtures are actually intended to light the streets for motorists rather than pedestrians. So the street lights are placed high above the streets in order to increase the street coverage and as a secondary result, the sidewalks are lit to a certain degree, although not adequately for pedestrians.
Telephones, trash containers and newspaper dispensers can be found intermittently along Main Street but to a much lesser extent on other streets. It is fortunate that these items are available to a certain extent along Main Street but still there are two basic problems. The first is that generally, these items are unattractive and detract from the appearance of the street. The main reason for this is that it is apparent that very little time was taken to choose designed materials that would enhance the appearance of the buildings nearby. The second problem with the placement of these elements is that they are often randomly placed along the street. Instead of clustering elements to accommodate the needs of pedestrians and create a visual attractive stopping area along a sidewalk, one finds a single amenity (or no amenities)such as a newspaper dispenser, a bench or a telephone at different points in the Main Street Study Area.
And although these amenities are used by pedestrians they are probably not used as much as they would be if their layout were designed, planned and well integrated into the city fabric.
There is some landscaping in the Main Street Commercial District which are quite beautiful when in bloom, see Figure  where the landscaping is used as a screening element and to visually accent the space. But these areas are often not well maintained and thus lose their effectiveness quickly . For example, behind the bus stop which is adjacent to the Mechanics Hall is a row of small plans and bushes. If these plants are cared for an continue to grow, they will adequately screen the parking lot and cars which are on the other side from the people who sit and wait at the bus stop. But maintenance will be of primary importance if this technique is to be effective.
Currently the plants are not large enough, so they may need better maintenance or they may be the wrong type of plant for this climate and for the amount of space available.

4 Residential Commercial District
This part of the study area has considerably more landscaped areas but like the first two areas is lacking street furniture. There are no benches, telephones or other such amenities found here at all. As stated earlier, few people choose to walk in this area because of the exposure to the traffic on the sidewalks and the lack of amenities. There are also significantly fewer street lights found in this section which makes walking less desirable in the evening.
Landscaping in this area is handled by the individual resident or business owner. And

Summary
There Residential Commercial District Front Yards Create A Visual Open Space Network which maintain the landscaped areas around their property. Although this does not replace the need for landscaped public areas along the street itself, this does significantly improve the visual quality of the 'streetscape' as well as making it more pleasant for pedestrians. Second, these amenities are most needed in the Main Street Commercial District and one can see that there has been attempts made to provide some of these amenities. Third, lighting is consistently provided in the study area. There are a number of problems also.
The most significant problem related to pedestrian amenities and street furniture is that there are limited public amenities provided in the Main Street Study Area. And in those places where amenities are provided, they are not well maintained on a regular basis. The Interstate Commercial District and the Residential Commercial District provide very few amenities for pedestrians. The Main Street Commercial District provides more amenities for pedestrians but the intensity of land use by pedestrians is also substantially greater here so proportionally there is still a shortage similar to that found in the other two districts. A second problem is that most of the sidewalks in the study area are not wide enough to provide needed amenities and still accommodate the daily pedestrian traffic. Third, in those places where amenities such as benches are provided there is no planned distribution which would guarantee that the location will provide the most efficient use of the amenity. Fourth, the amenities currently provided along Main Street have not been designed so that they contribute to the overall appearance of the street and make the best use of the space available. For example perhaps one or more amenities can be integrated into one unit thereby taking up less space on the street. Lastly, sufficient landscaping is not provided in the study area. Natural elements such as trees and plantings not only improve the city visually but help remove many of the toxic elements generated by motor vehicles and other activities in the area. These problems further encourage people to drive through downtown Worcester rather than walking and make the streets appear stark and desolate. Introduction Cities throughout the United States offer special events, activities and sites to entertain and attract both residents and visitors. These events contribute to the overall success and character of a city but also serve to distinguish one city from another. Business and commercial uses are the primary activities which occur in downtown areas and are generally considered the most important activities taking place downtown because they directly contribute to the cities economic growth, vitality and prosperity of the area by attracting shoppers, workers and tourists to that area. And although these activities are essential to the basic operation of a city, there are numerous other activities which also contribute to the vitality of cities. These events generally occur at special times during the year and in specialized locations in a city and help to make the city unique. Even those events which happen in a number of cities, such as First Night, are (and should be) made unique by the difference in the, theme, the planning committee, the attendees and the scale of the city and the event itself. These events should specifically be designed to cater to and attract residents of the city primarily and visitors to the city secondarily. Activity support, when fostered in an urban environment contribute to a city's character and also contribute to a city's economic vitality. Such events identify a city as a destination, make it distinctive and can help to improve the overall impression one has of the city. The broad term activity support will be used to describe these many and varied events.
Events included in the broad category defined here as activity support share a number of general characteristics. First, these activities tend to be unique, if not in type than in execution reflecting the character of the people living in the area. For example, the running of the bulls in Pamplona, Spain and the Palio Horse Races in Siena, Italy are unique events which are not offered in other cities around the world. First Night, on the other hand, is an event which is offered in many cities in the United States including Worcester and Boston. But because the planning and the number of people expected to attend differs greatly the events themselves are very different.
Second, these events are not necessarily associated with any or one permanent physical structure but instead can occur in a building, in open structures such as in tents or gazebos, or outdoors entirely. And the fact that these events often take place outdoors means that the number of suitable for them in the downtown is usually limited. The last shared characteristic of activity support events is that the length of the event varies depending on the type of event.
These events can be weekly, bi-weekly, yearly or one-time events. The most beneficial types of events are those which are successful enough to make them worth repeating more than once.
Haymarket in Boston, Massachusetts is an example of activity support for that city. The market is open every weekend in the same location. It occupies a city street between the popular tourist site Fanueil Hall and the Interstate 93 Highway. Offering fresh fruits and vegetable from local farmers , it offers a consistent event which attracts people into town on a regular basis to take advantage of the fresh produce and potentially save some money. Movable tents and tables are used to house this event and the street is blocked off. The key to this event is that it does not depend on the tourist population for its success but is instead focuses on the resident population. Only secondarily does it take advantage of wandering tourists who may be in the area.
New Haven, Connecticut, a city which is similar to Worcester both in size and economic vitality, nevertheless has continued despite the many economic problems to offer the weekly concerts on the New Haven Green for residents and visitors. 9 These concerts alone provide both residents and visitors to the city with a positive image of the New Haven despite the many other problems which the city has. These musical concerts range in type from classical to country and people from both the city and the outlying suburban attend these concerts some every weekend. Despite the poor condition of the downtown currently, these concerts contribute to the revitalization efforts and help to improve the overall quality of the downtown area. By bringing people into the downtown, the concerts also help to stimulate the local economy in a small way . They bring people into the many businesses in the area, for gas food etc. Also, each weekend, small street vendors open up carts in and around the Green for these concerts. These vendors sell food, programs and other small gifts such as balloons and pennants which are related to the current offering on the Green. In addition to generating additional revenues the souvenirs help to involve the listeners in the program and they add to the festive atmosphere created at the performance.

2 Activity Support in Worcester
Worcester County is a noted cultural center having many institutions including the Worcester Art Museum, The Worcester Science Center, the Woodman Higgins Armory, which has a well known collection of medieval armor, and the Worcester Historical Society Museum.
These institutions provide most of the activities currently offered in the Main Street Study Area.
The city over the past few years has attempted to offer other events in the Study Area but most have not been successful and are no longer offered. Two events which it was thought would be yearly offerings in the city were the Worcester Culture Fest and Celebrate Worcester.

2 .1 The Worcester Culture Fest
The Culture Fest was a project designed to bring residents and visitors into the downtown area and to highlight the City's cultural resources as it is expressed in its many institutions and in the performing arts in Worcester. Originally sponsored by the Worcester Business Development Corporation, the Culture Fest lasted for a week in June 1988, and was supposed to become an annual event. A wide variety of events ranging from theater presentations and concerts to basketball games and a fashion show were provided there. These 96 events took place in a variety of locations throughout the city including the Worcester Common, the Worcester Centrum, the Sneiderman Auditorium, and Mechanics Hall. This event was not as successful as anticipated. Planners expected 40,000 spectators to attend and only 5,000 actually participated. This type of program had a number of innate problems. First it stressed the differences between people too much. There is enough divisiveness in the city already and it seems that unity should be a major theme of any planned event for a large number of people in this city. In addition, did not attempt to provide family activities. There were too many different activities which separated adults and children. Thus individuals came to this event rather than families which discouraged use of the other offerings in the city such as restaurants and movies since entire families did not attend. This event should have emphasized the family much more.

Celebrate Worcester
Celebrate Worcester was offered for two years in downtown Worcester on the Worcester Common. Unlike the Culture Fest, this festival was geared towards bringing families as well as the business community into the downtown . Ethnic foods and crafts from the New England area were provided as well as hands-on activities for children and other entertainment including a major concert. Admission to all activities was free which made this event slightly more popular. It was also anticipated that this event would be offered on a yearly basis and thus it was held in the Fall and was to be the second major downtown festival in addition to the Culture Fest. Tourists visiting the area and looking at the Fall foliage were expected to attend this event also. A tremendous success in its first year Celebrate Worcester also is no longer offered.
Despite the failure of these activities in the city, Worcester continues to develop events to encourage the gathering and celebration of its residents. Most of the events seem to happen outside of the Main Street Study Area though, which is not beneficial to revitalization efforts in the Study Area. The events which still do take place in the Study Area are smaller and with few exceptions focus on particular interests groups rather than on a unified Worcester. Events in the 97 Worcester as a whole continue to be documented in various pamphlets and publications in the city including "What' s Happening in Worcester County, a BI-annual bulletin put out by the Worcester County Convention and Visitors Bureau and the Worcester Magazine which is published by the Worcester Telegram and Gazette.

3 Latin Festival
The Latin Festival is currently offered each summer in the Main Street Commercial District and as the title indicates offers food music and other events which highlight Latin culture. This event has been a success to date and will again be offered in 1997.

A Parade offered by the organization in September travels along Main Street to Lincoln
Square. This parade is also well attended according to the Convention Bureau and will be offered again in 1997.

5 First Night
A popular way to ring in the New Year in many cities, First Night is also a major event in Worcester. There are a variety of performances including mime acts and musical entertainment. There are also storytellers, a parade, ethnic foods and a fireworks display at the end of the evening. This event is oriented exclusively towards families and is intended to attract a large number of residents into the downtown.

6 The Worcester Common -City Hall Plaza
Worcester Common is the site used for many activities in the summer and was also the site of some culture Fest activities. Providing a substantial amount of seating and a natural setting which includes trees and a reflecting pool, many people are drawn to this area. Besides the events for the cultural Fest, a number of other activities also take place here. In the summer, a bandstand is erected for concerts and other types of entertainment. This encourages spontaneous performances which allows individuals to show their talent and adds a unique quality to the city itself. Unfortunately, the fact that all of these events are not organized also detracts from the success and quality of the performances. The reasons for this are first, because an organization has not been established or designated to monitor these performances, the talent is not screened so that the quality of the performance is not guaranteed and elements of the performance, such as the noise level, can not be controlled. Second, because a formal contract is not made with the performers, performances are not guaranteed. And finally, because all of the events are impromptu a schedule can not be provided to inform people of the type of performance, the date and the time, allowing them to plan to attend. These problems are significant enough to prevent such activities from making a positive contribution to the activity support component of the city.
The street vendors and the Worcester Lunch Car restaurant have provided activity support in the Common in the past. They encouraged activity in the plaza around lunch time and encouraged people to use the Common on nice days as a meeting place and a place to eat lunch. Located on the eastern corner of the Worcester Common this movable car is shaped like an old railroad car and was declared a historic landmark by the Worcester Historical Society.
The restaurant located in the car served lunch for sit down customers but offered a take out menu for those who could not fit in the car. Because the food has been good in the past and the prices reasonable, the restaurant could be very crowded during the summer. Street vendors sell individual items such as hot dogs and soft drinks and serve a variety of people including students and business people. Both encourage the use of the Common by a variety of people by offering them an interesting selection of foods at lunch time and a pleasant setting to eat in.
In the winter there is little activity in the Common. The city considered having ice-skating on the reflecting pool but this was not considered to be viable use in this location. Thus the Common is still rarely used during the winter months.
The Common is an important part of downtown Worcester adding to the life and vitality of the city in many ways. First it is the largest green space in the Main Street Study Area, a large exterior space which can accommodate a wide variety of activities. The natural and the limited pedestrian amenities which include benches and trash receptacles encourage people to sit in and stroll through the Common. As stated above, the street vendors and the Worcester Lunch car, and impromptu events encourage people to use the area. Finally, planned events, such as the Culture Fest, which make use of the Common for particular segments of the event also encourage patronage of this park. But despite these positive aspects, a great deal more could be done to bring people into the city and to the Common by solving some of the problems associated with the design, maintenance and scheduling for the Common.
The problems associated with the Worcester Common basically fall into two categories: problems caused by what exists and problems caused by what does not exist. Based upon this research, when looking at Worcester Common there appears to be three things missing: 1) a controlling body or an organization 2) an adequate number of activities taking place in the Common on a regular basis and 3) security. The second two problems are really a result of the first. Without an organization or group that is specifically in charge of the Common it is difficult to plan, coordinate and monitor the activities that do take place. Security is a problem in that currently people do not feel safe using the Common after sunset.
There are also a number of problems with the activities which currently take place on the Common. First, they primarily take place in the summertime. There are almost no comparable activities in the Fall and Winter except ice-skating but it is often not cold enough in the downtown to freeze the reflecting pool. Second, besides only operating in the summertime, the Worcester Lunch Car and the sidewalk vendors have very limited hours, usually only open during lunch time. Therefore, with the exception of some spontaneous events and the events planned for the two weeks of the Culture Fest on the Common, there are few activities to bring people together there. Finally, particularly in the summer, there appears to be a large number of elderly people and students who make use of the Common and the current activities do little to address these groups.

7 The Worcester Music Festival
The Worcester Music Festival is the oldest festival of its kind in the United States and is the best example of activity support in the city of Worcester. Started in 1858 the festival is held annually, usually during the month of October. Concerts are offered in venues such as 100 Mechanics Hall during the week of the festival. The concerts vary in type from classical to modem to attract a wide audience.

8 The Eastern Sprints Rowing Championship
This world-class rowing competition involving the most prestigious colleges and universities is hosted by the Worcester Chamber of Commerce and sponsored by a number of business concerns including the Worcester Business Development Corporation. Although not held in the Main Street Study Area this event is included because it is expected that the spectators drawn to this event could, " ... prove valuable to the city's economic development." (Worcester Telegram 3/13/89) As further encouragement VIP passes were provided to the first 1,500 executives and alumni who responded to the invitation entitling them to brunch and parking and cups sweatshirts etc. were made with the eastern Sprints logo. These measures would hopefully encourage these business people to invest in Worcester at some point. So this event could potentially influence the downtown's economic growth and it reflects the fact that the City administration is looking both to the present and the future.

9 Summary
There are few events offered in the Worcester Main Street Study Area which encourage residents and/or visitors to utilize the valuable resources and services provided here. The many attempts to initiate events in the past and the continuing efforts to do so indicate an awareness of the need for such activities. Thus far though there few events which occur on a regular basis and are designed to attract residents and visitors as whole rather than based upon cultural and/or economic differences. Family activities and events need to be promoted on a regular basis. The city should determine the appropriate goals and objectives of such events and then design events to meet them. Two basic categories for the goals and objectives should be taken into consideration. They are issues related to the users or people and spec-related issues. Based on the past the success and failure of past events, some of the goals for these events should include, bringing people into the Main Street Study Area, providing entertainment to the users, encouraging the well-being of the users, and encouraging families to attend. Activities currently provided here are well attended by the segment of the population they address. Free activities should be included in the events where possible in order to attract larger audiences and should be catered specifically to the needs of families. Efforts should be made to attract families into the Study Area as much as possible.
The primary goal or objective with regards to space should be to contribute to the economic and social regenerative efforts already begun by the city in the downtown area. Thus the events should be well planned and executed so that the event will be well attended and financially profitable for organizers. A second goal should be to make better use of the under utilized spaces in the Study Area. Looking at the many pamphlets advertising activities, one sees that most of the activities, with the exception of those in places such as Mechanics Hall and the Worcester Art Gallery, take place outside of the Main Street Study Area and the city as a whole. The Worcester Common and the many surface parking lots in the could be utilized for additional activities and events. Particularly, the surface parking areas although full during the weekday business hours, are empty of the weekends and in the evenings and could potentially be used for planned activities. The specific problems associated with the Common need to be addressed. This is the largest open green space in the downtown area and it is underutilized and poorly maintained. Proposals should be submitted to re-design the Common so that it will become a more attractive and functional part of the downtown.
Residents and visitors must be encouraged to visit the Main Street Study Area on a regular basis, over the long term, because people contribute to the economic and physical vitality of an area and make successful cities. This requires that the proper mix of activities, services and events be offered to attract people to the Study Area on a regular basis.

Introduction
The term open space can be used to describe any empty parcel of land but it specifically refers to those areas which are designated in city ordinances to remain open or are created by the buildings or roadways which surround them. The main goal of open spaces is to provide high quality comfort zones to pedestrians. Looking at the many well-designed and wellmaintained open spaces found in cities today one can clearly see that they are highly valued spaces in cities and help determine the character of the area. The importance of these parcels is readily apparent when one looks at larger cities such as New York and Washington D.C.
Central park in New York City is a park designed by Frederick Law Olmstead which is utilized a great deal both by residents and tourists. And although there are problems with the park, people enjoy using it and living near it since it is one of the few substantial green spaces in the city. Washington D.C. is very fortunate to have not only a fairly large quantity as well as many different types of open spaces. These include the mall in front of the Capitol and the area surrounding the Washington Monument. Some are paved and some are grassy while others are mostly dirt and gravel. And in these spaces one will find people performing, participating in sporting events, listening to concerts etc.
In general the activities which take place in these areas vary from strolling, to peoplewatching to eating. Open space allows people to get away from the many imposing structures found in a city which can make people feel closed in and restricted. The success of these spaces can be measured by how much people use them. While it is difficult to predict usage when planning such an area, there are ways to design open spaces so that they are inviting to people.
In general , the overall size and scale of the space should conform to the dimensions established by the adjacent buildings and the heights associated with those buildings. Also amenities should be provided for pedestrians which assist in giving the space a scale, specifically a human scale. the way open spaces relate to each other and are integrated into the street system and the built environment of a city are important factors. They will determine how successful the area will be and how well it will contribute to the success of the city as a whole. For example, raised plazas, such as the plaza designed by Philip Johnson for the PPG Plaza in Pittsburgh, it was determined tend to be less successful in terms of attracting users because they isolate the user and are more difficult to enter and leave. The open spaces in the Worcester Main Street Study Area will be identified and described to determine their viability and effectiveness.

2 Fleet Tower Park
A beautifully manicured lot which is approximately one and a half acres in size and sits directly adjacent to the Fleet Bank Tower building across from City Hall. There are two walkways in the park which divide it into three unequal portions of green space. The first section is adjacent to an access road to the far left of the site. Here there are carefully placed trees and flowers located along the edge of the walkway. In the center of this space is a large pine tree which itself is surrounded by small plants and flowers. The second section of the site is semicircular in shape and also has trees lining the edge. In the center, is an area of small plants and flowers. The last parcel is a narrow strip of land which is directly adjacent to the Fleet Bank Building. Here there are only one or two trees. Each area is surrounded by a chain and balustrade fence. Visually, this park is a very positive addition to the City of Worcester and the Main Street Study Area. This area is very clean and well-maintained and well-executed partially because it is fenced off from the public. In addition it serves a major function adding natural beauty to the downtown area.
Despite the fact that this park make a positive visual contribution to the city it does not make as significant a contribution as it could. The main problem is that it is not open to the public. The lot is fenced in to prevent people from randomly walking on the grass. There is no seating or other public amenities provided there although it is directly adjacent to a major bus stop and this further deters people from making use of the park. It is clear that it is not intended for public use, and it is not used as a result. This has the unfortunate result of making this park and object like the adjoining building. It is visually attractive but not functional. And because this park has not been made accessible to the public, this area is not as successful and does not make as great a contribution to the Main Street Study Area as it could be. In fact it seems very inconsistent to have an essentially private open space in such a public location, across from City Hall and near at least 4 major bus stops.

.3 The Worcester Common
This park, located on the western side of the City Hall building, is a major node in the city. First created in the late 18th century this space has long provided a substantial area for people to gather and events to take place and it continues to be an extremely valuable and beautiful part of downtown Worcester. Within the Common are many of the elements which Whyte identifies as leading towards a successful open space area such as adequate seating, a reflecting pool and a large amount of green areas. There is a great deal of seating in the Common. The majority of the seating is located around the edge of the reflecting pool but there is additional seating further away from the reflecting pool. There are a great deal of trees around the periphery of and in the Common itself which serve to enclose the park to a certain extent and protect it from the traffic which wraps around the park on three sides. In addition to providing this enclosure and being pleasing in and of themselves, the trees help to frame views both in and out of the park which adds variety and privacy for pedestrians and motorists.
Overall, the grounds are well-maintained and this is a pleasant park in which to sit. But beyond the many positive aspects of the park, it is still not used as much as it should be.
There are many reasons why this park is under-utilized. One of the main factors which restricts use is that it is surrounded on three sides by traffic, and often heavy traffic. As noted above, the park used to be considerably larger than it is today and thus in the past was able to support itself through its size. Today, since it is considerably smaller those surrounding buildings and activities need to help support the activity in the park to ensure that the park is used and does not get any smaller. Also the pollution from cars could be damaging to the plants in the Common and discourage users. Another very important problem with the park is that it is not well lit. People have stated that they feel very unsafe walking through the parking even in the early evening hours. This not only limits usage of the park but further discourages people from utilizing other nearby services near the park in the evening such as the library and shops. Because this park is in the center of the city and to help the city in general, these problems need to be addressed in order to make this a thriving downtown area.

106
A landscape architecture firm submitted a proposal to redesign the Worcester Common in 1992. The primary focus of the design was based around the suggestion that the art pieces which are now scattered about the City Hall grounds be organized into a logical pattern which would encourage people to walk through the Common. To initiate the design process, the Common has been divided into two parts. The first being the reflecting pool area of the Common, the smaller portion of the park and the second parcel being the area currently lined with trees. Renovating the reflecting pool segment will involve removing the reflecting pool entirely and dividing this area into three segments. The first being a stage which would have lawn seating in front of it. The second would be the war memorial with a fountain and the third would be a lawn are which is slightly depressed into the ground. The lawn in the winter could be filled with water which would freeze and ideally become an ice skating area for residents and visitors. The second segment of the Common posed a different set of problems in that this area is what is left of the old central burial ground, so among all of these trees there are dead bodies underneath the ground. Therefore, landscape architecture firm has proposed that the trees be left where they are and closest to the City Hall building a possible rose garden be developed and in the back more of a botanical garden be planted. This would provide visitors with lush green surroundings which could both be studied and enjoyed.

4 City Hall Plaza
There is a large paved area in front of City Hall which functions in a variety of ways.
Not only is it the major access to the building but it is also the major bus stop and waiting area for riders as well as just a place where pedestrians can walk by or sit. Thus it has a dual nature in that it is both a formal place where City officials enter to go to important meetings or to their offices, but it is also an informal waiting area for pedestrians and bus riders. Given this dual nature any design suggestions should address these uses.
Currently, the area is extremely dirty and unattractive. The large space encourages people to come and sit in front of the building but unfortunately there are only a few places to sit and these are not very clean.
The landscape architecture firm recommended that this area be divided into two sections similar to the way it is now with a few steps separating the two parcels. The upper section in their proposal would provide seating and have small food vendors so people could seat their and perhaps eat lunch yet not interfere with the pedestrian traffic. The lower section would have bus shelters and trees planted at the street edge. The entire area is to be re-paved with the concrete block and granite runners in between just as is proposed for the rest of Main Street.

.5 . Washington Square
Older pictures show that the original green space within the rotary was once much larger. This space, often considered to be leftover space, has a memorial with sixteen benches and have lunch. Although, a matter of taste it seems as though the design is slightly overdone.
The structure is too large for the size of the park and the spaces in the park are under-protected and could have been greatly improved in a number of less costly ways. First given that the park is bounded on both sides by busy streets a screening element is necessary. A dense symmetrical, arrangement of trees would have been more effective at defining and enclosing this as park space. And a grouping of trees would have also been more attractive and pleasant for users and a better juxtaposition to the masonry Federal Building than another masonry structure. Second, natural vegetation helps to filter the air, more and more an important concern as the numbers of cars on the roads continues to increase and environmental, specifically air quality is becoming more important. In addition, as the crowns of the trees continued to grow, they would provide significant shade and protection for users of the park and the park itself.
Finally, trees are more subtle elements and they help to soften the already hard edges of the

7 South Lincoln Square Open Space
This space referred to in this section is located between the Holiday Inn and Lincoln Square. Although, this area is currently overgrown with shrubbery and trees, it does have the potential to become part of the gateway into the city. The lack of care and maintenance for this area is suggests that the potential of this space as attractive visual open space is not realized. It may not be appropriate to design the space so that it is directly accessible to pedestrians, but plans should be undertaken which will develop this space in to an attractive visual open space perhaps providing needed directional and informational signage for motorists entering and exiting the downtown.

.8 Summary
There Signs provide important information to residents and visitors including information about, 11 ••• business identity, location, and goods and services provided ... 11 in a region. (Shirvani p.42) In addition, signs, through their, 11 •• .image character and form ... 11 (Shirvani p.42) function to further enhance the appearance of businesses, street facades/walls and the city as a whole.
Therefore, when well planned signage can be used to improve the overall appearance of a building, to provide coherence to the street facades, and to direct people through an entire city.
There are many types of signs found in cities today including free-standing signs such as highway signs, window signs, projecting signs, billboard or building signs and canopy or awning signs. And these are the types of signs found in the Worcester Main Street Study Area.
Signage in the Main Street Study Area serves two main purposes; to advertise, providing information about events, local sites and resources; and to give directional information. Advertising signage includes those signs which identify businesses, their locations and products, events etc. Advertisement signage can be found throughout the city, the location of the sign not necessarily corresponding to the location where the product can be purchased or to a specific business location. Directional signage provides motorists and pedestrians with the necessary information to travel through the city, identifying streets, important intersections landmarks, buildings, etc. The term directional signage will be used here to refer to signs which provide information such as streets names, speed limits, bus stopping areas, warning information and any other information which assists in guiding motorists and pedestrians through the Main Street Study Area. Directional signage is an essential part of any city or town. It determines how accessible the area is and will be to motorists and pedestrians. When properly designed and integrated into an area it can provide comprehensive information about streets, buses and other important information residents and visitors might need.

2 Directional and Locational Signage
Directional signage though present in the Main Street Study Area is not utilized as fully as it could be here. Similar problems exist in all three districts and thus they will be discussed as a whole in this section of the report. There are three major problems with the directional signage in the Main Street Study Area. First, there are too few signs provided in the district to properly instruct and guide users in the area. Directional signage in this district is very limited which makes navigating through the Study Area difficult at times. One of the main reasons for this is that there are numerous one way streets here which can make it difficult or impossible for motorists who are unfamiliar with the area. Therefore, having adequate numbers and types of signs which are easy to read will make travel easier and safer. Second the signage which is provided is not designed and integrated. Thus the information which does exist is hard to find and often difficult to read. The size of many of the signs in the Study Area are often to small to read from any measurable distance. Street signs and bus stop signs are relatively small and are difficult for motorist especially to decipher and are also hard for pedestrians to read if they are more than three of four feet from the sign. The colors and lettering styles have not been well thought out and thus none of the signage really makes an attractive addition to the overall appearance of the downtown area. Finally, there little or no signage which is devoted to identifying important city landmarks specific points of interest or areas in the city. Thus there is a basic problem of unavailable and unclear information. There are no signs to guide people to City Hall, Worcester Common or Federal Plaza. Therefore it is very easy to overlook these destinations when one visits the city. These problems will be discussed in greater detail in the following section of the report.

3 .1 Insufficient Information to Guide Pedestrians and Motorists
The Main Street Study Area has a number of landmarks and places woven into the city fabric . Thus, the many one-way streets, which are also a part of the complex urban network, make navigating the area even more challenging, particularly for those who are unfamiliar with the area. The most common problem found in the district is the change in the street names. The Thus it is important that all signage be provided and maintained. This includes signs which designate one was streets, bus stops, and other important information. One way signs are not provided as often as one might like in the Main Street Study Area. Though they are found at least once on most streets, reminders are needed along the lengths of these streets. Currently, one can often find motorists making wrong turns onto one-way streets due to the minimal information which is currently available in the Study Area Directional signage to major roads such as Interstate 290, Grove Street or Highland Street is also difficult to find in the Study 113 Area. And there are almost no signs to guide users to important places such as the police station, the bus station or the train station. Some of this may be remedied when the new Union Station project is completed, nevertheless since these issues have not been addressed to date, it is unclear how well they will be addressed in the future.
The problems for pedestrians are even more pronounced since most of the directional signage here is oriented towards motorists. There are no signs or maps to direct pedestrians to the important sites or streets in the study area. In fact almost no information is provided for pedestrians at all beyond the basic street signs. Even important services such as the police station and restrooms are not called out currently or distances to sites provided. And because this information is not provided, people are discouraged from walking to their destinations since the distances are unknown and are not specified.
The need for this large amount of information in cities to better assist both residents and visitors further requires that the signage be designed and then integrated into a package which is functional and attractive, enhancing the appearance of the area rather than detracting from it or overwhelming the area.

3. 2 Poorly Designed Signage
Poorly designed signage is a problem throughout the Study Area. There are three basic problems. First, much of the directional signage is too small to adequately assist either confusion. This can be very confusing for both motorists and pedestrians, particularly to elderly users whose vision may not be as strong as it once was. While parking signs tend to be more traditional in cities, one sees much more experimentation with bus stop signs, one example being the bus stop signs found in the Washington , D.C. area. Experimentation with the parking signage is also not out of the question.
The organization of signage in the Main Street Study Area is the last problem related to design of the directional signage. Currently, directional signage is randomly distributed throughout the Study Area. Placed on individual poles often the information is not coordinated in an intelligible way for the users of the information. Using the example of Pittsburgh, one knows to always expect a large signage unit at all major and secondary intersections on which one will find the major street names, one-way information, and other information about upcoming places coordinated into the sign. Thus users always know what basic information they can expect to find when approaching an intersection. Within the Main Street Study Area it is necessary to search for each bus stops sign, one-way street information etc. Users do not know where to find needed information and this makes the area less desirable and more confusing as a whole.

3. 3 Unavailable Information
Directional signage in the Main Street Study Area is at a minimum. Basic street signage and parking information is provided in a unorganized fashion throughout the districts but additional information which would be helpful to visitors and residents has been completely left out. Directional signage to places such as City Hall, Worcester Public Library and the Worcester Art gallery are basically non-existent. Even signage for the Centrum is limited. Not only does this make it more difficult for potential users of this information, but it suggests that officials in the city do not see these places as the destinations they are. Signage for pedestrians is particularly absent. One is hesitant to walk through the Study Area, because locations and distances are not provided which would allow users to plan their time.

4 Signage which Identifies Businesses, Goods and Services
Signage in the Worcester Main Street Study Area which identifies businesses, goods and products is varied in style size and location. This variety is partially indicative of the many changes which have taken place in the city and in the changes in the technology of signage construction over the years. Looking at historical pictures of the city, it is clear that signage in Worcester has changed with the city. In the mid to late nineteenth century signage appears to have been very clear and unified in the city. Pictures indicate that the signs on the shops and throughout the city used similar color schemes and lettering styles. The options in these areas were. very limited, the end result was a positive one in terms of the appearance of the city blocks and that of the city as a whole. Today the variety of choices which are available to buyers is quite broad. There are an unlimited number of colors, materials and lettering styles available to perspective buyers which allow individual business owners to relay information in a variety of ways. This has led to major changes in the appearance of downtown Worcester.
Looking at shop signs found throughout the Main Street Study Area today, it is apparent the unity once found here has been lost. Instead, decisions concerning signage are being made by individual business owners with little consideration for the appearance of the block or the city as a whole. To evaluate this type of signage in each district, this study will primarily focus on the overall design and placement of the sign. These two components are pivotal in determining the impact which a sign has both in terms of communicating its message to the public and on the appearance of the district. Unlike directional signage, the types and styles of the signs vary from district to district, so this section of the report will analyze each district separately.

5 Commercial Interstate District
The signage in this area reflects the transitional stage of this district. Over the past five years this district has been transformed dramatically as highlighted in previous chapters. These changes have also changed the signage found here. In the recent past, this district had a kind of eclectic combination of new and old signage, a combination sometime found within the signage of one building. The many sign types reflected the many changes which this district has been through including the placing of the highway and the changes in signage types. The old signage was primarily found on the older industrial buildings, many of which have closed.
Before their demolition , these industrial uses had expanded over time. And rather than replacing the older signs, more signs were added to the newer buildings. In addition, these uses needed to change most significantly when the highway was built. Most of the goods for the industries were transported on the new highway and thus there was an attempt to make the signage legible from the highway since the buildings were close to it. Yet they also had to continue to address motorists and pedestrians on the neighboring streets. This yielded many clever signage types which have now been removed to make way for the new hospital. Some  Already there are indications that some of the same old problems found on the industrial buildings are beginning to re-surface in the uses which do exist in this district. This is due to two major problems which currently exist. First there is the problem of how to address the many passing consumers. Given the location of this district, there are three groups of people which can be addressed through signage provided in this district. As in the other two districts, there are pedestrians and motorists on the neighboring streets. The third group, which is more specific to this district and more difficult to address with signage, is the motorist on the Interstate 290. It is this third group which creates difficulties in signage design. And thus those uses which are attempting to address all three groups typically have at least three signs.
One tall, free-standing sign which addresses highway motorists , one large sign on the building itself which addresses adjoining roadway motorists and typically a ground level sign located at the entrance to the use which addresses both the pedestrian and the local motorist. A second problem with the signage in this district which could lead to a similar type dissonance in signage found in the district previously is the problem continuing problem of how to advertise new products. Currently, when businesses in the district wish to advertise a new product, they place an additional sign on the building or lot. The Worcester Post Office and the Visiting Nurses Association uses temporary signage to advertise new products offered by the companies. As a temporary measure, this type of signage can add color and a dynamic character to a building and to the district as a whole because they can use colors, lettering styles and materials which one would not use on permanent signage. As the product becomes more mainstream, though, these signs should be removed from the building and if necessary a permanent sign designed which works with or replaces the current signage and enhances the building, street and district as a whole. Approximately, five years ago when express mail service was added to the post offices list of services, they placed a temporary fabric sign, which read "Express Mail Service", on the building to advertise this new service to customers.
This direct communication to customers was an acceptable solution as long as the sign did not become permanent. The Visiting Nurses Association has recently been advertising their day-123 care services using a similar cloth sign. Although very colorful and attractive as a temporary measure it should not become permanent.
Thus far signage advertising multiple use buildings in the district has been less successful. Although a more difficult advertising problem the solutions need to be as successful as individual signage. The Union Place Complex which is the last industrial building in the district and has been renovated into commercial use space has a disappointing compilation of signs in front of the building. The first, the original sign was very small and used even smaller lettering to identify each commercial use in the space. Realizing the illegibility of this sign to motorists, another larger sign was added in front of the building which also lists all the commercial uses in the building. These signs are in no way related in terms of design. The color lettering style and size are all different. In addition, signage recently been placed in the district which advertises the newly renovated Galleria Mall complex is siffiilarly not integrated with anything specific. As more signs are added this will continue to be an issue. Particularly at issue will be how the new Union Station project will advertise the many uses in that building and how the signage will work with the existing signage in the area. This area has a great deal of potential if growth is properly planned for. Signage is an integral part of Worcester's continued growth because it will relay important information to the public, shoppers and potential residents of the city, and if well designed can be used to help improve the overall appearance of the city. The problems identified here can be categorized as follows: 1) Lack of continuity of signage. Although not an extreme problem as of yet, it will be one in the future as the vacant land in this district is developed. 2) Who is the audience? Who is the sign addressing, motorists on the highway or city streets, pedestrians, or some combination of the three. The abundance of signage types suggests that instead of making a choice or establishing a hierarchy, business owners are attempting to address all of them at the same time. This means that businesses often have too many signs which can overwhelm the building and the block. As new uses and buildings are placed in this district, there is the opportunity to design and integrate attractive and informative signage into the overall designs for the site and the building. The city should ensure that this is a design priority.

Signage in this district is very different from that found in Interstate Commercial
District. The main reason for this is that land use is more intensive in this area so there is more signage but they tend to be smaller since lots are smaller. Business owners can not have multiple signs because they have less space to work with. This requires them to more efficient with their signage. In addition, there are only two audiences which need to be addressed in this district, the motorist on the road and the pedestrian. Here, each business tends to have only one sign. The signs in this district vary a great deal in style, color and materials, see Figure   8.4. Often the signage reflects the overall character and appearance of the building of the building on which it has been placed. The problems with the signage here are easier to discuss because there are standards for the district which can be applied. In the Interstate Commercial District it was clear that business owners were grappling with the issue of what audience to address. In that district, owners have three audiences which they can address if they so choose.
They are the highway drivers, the city drivers and the pedestrians. In this district there are only two, the city drivers and the pedestrians. And in trying to create a vital downtown area businesses should first strive to address the pedestrians. In this section, signage will be analyzed on this basis. The other two criterion looking at in this study are how the sign works with the individual shop and how it works with the other signage in the block.
All the signage in this area identify businesses and owners here have used signage more effectively to enhance the appearance of their businesses than in the previous district. There are no signs or billboards which advertise goods or services. In general the signage here is accenting the appearance. There is a diversity in styles and sizes but they are unified in that most are placed just above the first story and are proportioned according to the width of the store front. Some of the many good examples are shown in Figure 8.5.1 and 8.5.2. Many of the blocks have organized their signage just above the first story which creates a consistent flow across the facades. But there is also a new trend which seems to be growing in the owners must ensure that the signage selected for the building, business or use is not only appropriate for the building itself and the use it represents, but also should make sure that the signage is integrated into the block scheme and the overall scheme of the district. This will be 130 vital if the district and the Study Area as a whole are to have attractive and well integrated s1gnage.

7 Residential Commercial District
The least amount of signage is found in this district because this is still primarily a residential area. And as such, the signage here should smaller and less obtrusive. There are many businesses found here such as doctors and lawyers offices and insurance companies. Two basic problems in this district, related to signage, are the visibility of the building numbers and the amount of information provided on the commercial signage found in certain parts of the district. Figure 8.6. This is still a almost exclusively a residential neighborhood and businesses are rarely identified by driving by or walking along the street. Most people find these businesses through referrals or over the phone. Thus, when people are walking or driving through this area they first try to identify building numbers and then look for the actual business or u e. Unfortunately, the numbers on many of these buildings are often too small to identify. The size of the building numbers being perhaps still the same size and design as when the building contained residential uses. Once a residential building is converted to a business, such as the small medical and law offices which are currently located here, more people visit these buildings and many for the first time. Therefore, the numbers need to be easier to read and larger. Currently, the numbers are difficult for motorists and pedestrians to read which can cause traffic problems and be aggravating to potential users of the resources in this area.
The name signage for the commercial uses in this area, that which identifies the use or business in the building, tends to be quite tasteful and well designed. Most of the commercial and office uses in this district are relatively new and so there is little if any outdated signage found here. In addition, care has been taken in designing the signage here so most are attractive Residential Commercial District Commercial Signage and add to the character of the district as a whole. The commercial signage here tends to be small, since most owners of these businesses recognize that they are usually not drawing customers directly off of the street, as retail uses tend to do. Instead the commercial uses found in this district, law and medical offices for the most part, use other means to attract customers, including referrals and the media. The one problem which is evident currently with the name signage is that it is often too cluttered, providing more information than is needed on the sign itself. Because the signs tend to be small, the clutter is less of a problem from a distance and they do not detract from the appearance of the district. In the future, though, cluttered signage could become more of a problem as the number of businesses in this district continues to grow and they begin to compete for attention along the street. Given the types of businesses which exist here there is really little need for more than the name of the company, what type of business it is and perhaps the names of one or two of the principals, for further clarification.
As the numbers of commercial uses increases in this district the issue of signage here will need to be addressed more directly.

Summary
Signage is a very important aspect in the design of cities. It should be carefully considered when development or redevelopment projects are undertaken, particularly in dense sections. It is the secondary link between the different businesses and building blocks. It also is a tremendous asset to motorist and pedestrians and thus needs to be carefully designed so that it informs rather than confuses guides rather than suggests. Signage in the Interstate Commercial District should always be designed recognizing the target audience with a particular emphasis towards using a few signs to address as large an audience as possible. The signage in the Main Street Commercial District should stress the need to address both motorists and pedestrians and if a hierarchy exists should perhaps first address the pedestrian and then the motorist. Also owners must place their signage within the larger context of the block and the district as a whole and evaluate the contribution the sign makes or could make to these larger contexts. Owners in the Residential Commercial District should emphasize the streets 133 numbers of their buildings as the primary identifier first and the actually name signage only secondarily. This will help integrate the commercial uses with the residential uses which dominate this district and provide the information needed first by the motorists and pedestrians looking for commercial uses in this district. Introduction The loss of historic resources in cities is a significant problem in urban America. As cities have grown and developed over time older buildings and uses have been replaced by newer more modem ones. Growth and development in American cities in recent decades has been rapid and difficult to control. As a result many valuable and important historic resources have been lost, replaced by newer buildings and/or uses. Unfortunately, many of the developers, responsible for substituting the older structures and uses with the new elements, have done so without considering, the value of the old ones. The quantitative methods used to evaluate the value of existing structures, such as a cost benefit analysis, have not adequately been adjusted to account for the non-quantifiable aspects the buildings such as their historic value or potential value in the future. Thus, many elements which integral to a city's history have been lost, some even without documentation. Thus efforts to preserve and protect significant community resources in cities both through documentation and by preserving the actual resource have become important planning activities. Preservationists monitor the many changes in a local environment and try to a reasonable extent to protect important resources.

Preservation policies have become important components in planning efforts
particularly in urban areas where growth and change continue to redefine the character, identity and future of cities. The term preservation often brings to mind images of historic structures and landmarks, since a primary function of preservationists is to identify and protect historic structures from being demolished or drastically changed from their original appearance. But today planners and urban designers in addition to preservationists, are involved in preservation activities, together addressing a broader range of issues than previously focused upon.
Planners and urban designers also work to preserve significant land uses and activities in a community, in addition to protecting and re-using historic structures and spaces.
Not all activities and uses in a community can be preserved no matter how long they have been present so designers must prioritize these activities and places based upon their economic viability and cultural significance. A designer must, "target those (uses) which are ... economically vital and culturally significant..." . (Shirvani p.44) Preservation, when used to define, protect and enhance structures and uses in a community, can assist in facilitating revitalization efforts. The Main Street Study Area was analyzed in order to determine which structures and uses should be retained in the three districts.

2 Worcester Preservation Plan
Preservation planning has typically resulted from, " .. Looking at Worcester today, one finds uses and activities which emphasize the pedestrian slowly being created as well as those which do not consider the needs of pedestrians. Because preservation activities recall the past these structures more readily address the needs of the pedestrian. Also preservationists, having a thorough knowledge of past uses, understand the advantages and success related to having more pedestrian oriented cities.
Therefore, proposals which focus on existing historic structures include a concern for the pedestrian. These buildings then had shops at the ground level and offices and/or residential above. This commitment has been maintained in recent renovations to certain degree, the building maintaining the commercial uses at the ground level with large window opening and providing retractable awnings which both protect the pedestrian and the interior spaces. Unfortunately, the commitment to the pedestrian is not apparent in the new commercial structures being built and proposed in Worcester.
The newer structures in Worcester are more and more rejecting the pedestrian, in that they are built without windows at street level. Looking at buildings such as the Worcester Centrum this trend is becoming more pervasive as crime has become more prevalent in the downtown . And although, extremely successful in terms of the events scheduled there, the Centrum contributes little to city visually or to the daily street activity. This is particularly problematic given the size of the structure. The building has very few windows and most of these are located above street level. The blankness of the walls at the street level creates a very uncomfortable environment for pedestrians who must walk next to the building. There is nothing for the pedestrian to look at while walking past the building and no human scale elements which for the pedestrian to relate to which would assist in providing a sense of comfort.
Clearance landmarks. Each of these elements will be examined within each individual district.

3 Interstate Commercial District
The Interstate Commercial District was once a center of manufacturing and industry had many manufacturing buildings and uses. Many of these uses have been gone for a number of years, but the buildings which housed these uses have only been tom down recently. Thus the district is defined not by a building type or style but rather by the many vacant lots which currently exist here. Few preservation activities have taken place here given perceived Jack of value which the uses have and continue to have. The district has most notably one post office, one housing area, one donut shop and two historic structures. Despite the Jack of character and definition in the district, it is the premise of this report, that few remaining uses in the area should be preserved and expanded along with the few remaining historic structures. Somehow they have survived the deluge of demolition and seem to continue to function in spite of the many drastic changes. Closer inspection of these uses and structures leads one to realize that there is some innate value in the few remaining items which are making a positive contribution to the MSSA, although dramatically overshadowed by the desolation of the district as a whole.
There is only one residential area in the district. This is the Plumley Village Housing Complex. Despite the limited amount of residential uses which exist, these play a vital role in activating this district. First the complex provides some of the only street life and evening life which currently exists here on a regular basis.12 One can always find people between this development and various downtown locations, the bus stop etc. Second, this development to a limited extent begins to reconnect the district with the residential neighborhood on the western side Interstate 290. And the divisive quality of the Interstate is minimized the more the connections between the two sides are reinforced and strengthened. Given the impact that this residential complex is having it seems as though residential uses should be preserved and in fact increased in order to strengthen the ties between the neighborhoods and improve the quality of street life on a 24 hour basis. In addition the hospital complex will increase the need for housing nearby in order to meet the needs of doctors and nurses when they are on call.
The continuing success of the donut shop and the post office located at the intersection of Central and Summer streets (diagonally across from one another) suggests two things for the area. That there is a potential for commercial uses in this location and that the current use of this streets as an entry into the city should be preserved and reinforced. Creating a strong edge on one side of the entry would help to further reinforce this entry sequence. Commuters

4 Main Street Commercial District
Preservation activities in this district are much more prevalent given that there are more distinctive buildings which have been identified as being a significant part of Worcester's history. They include some of the buildings mentioned above such as Mechanics Hall and City Hall. Unfortunately, preservation activities have focused on specific buildings more so than the preservation of specific uses in the district. Currently, the city, specifically the historic preservation society is very active in having individual buildings declared historic and is further contemplating having Main Street declared a historic overlay district. While these are positive steps for this district, there are also a number of activities and uses in this district which should preserved. Perhaps assumed but often not stated it is essential that commercial and retail uses be preserved on the ground level of buildings in this district. Specifically, restaurants (of all types) and cafes, pharmacies, and various types of shops should be encouraged here because they generate activity both in the day and evening. A use currently absent from the downtown area is a bookstores. Recently bookstores with extended hours have become very popular, they encourage people to browse and read similar to a library but also contribute economically. Given the many colleges in the city a bookstore would be a positive addition to this district. These activities encourage pedestrian use and help to revitalize the district. Next it is also important to maintain the office and residential uses on the upper stories of these buildings. Clearly business activities help to stimulate the economy and generate pedestrian activity throughout the day . But in the evening it is the residential uses which keep the area active and alive. Currently in this district there is one only one housing project originally called Urban Village it is a 12 story high-rise tower which has 80 apartments inside.
There are also some older buildings on Main Street, Pleasant Street and George Street which currently have residential uses above them. It is unclear what condition these spaces are in but the owners should be encouraged to rehabilitate these buildings and maintain the residential uses in them because they could make a significant contribution to the overall vitality of this district in the future. Other uses which could also contribute to the day and evening life of the downtown are the three theaters which are currently found here. They are the Loew's Theater, the Paris Theater and the Loew's cinema. These uses should be preserved.
There are a few food vendors which can be found in the City Hall common these activities should be preserved because they bring people and life into the common. As shown in Figure 3.9, the vendors provide food to many customers but they also provide places, identifiable destination points within the Common, where people can meet one another for lunch and conversation. The vendors, as localized destination points, attract other people also.
People who may not be eating lunch or meeting someone, perhaps are alone, will sit close to the vendors so that they can experience some of the activity without directly taking part in it.
The vendors should be encouraged to return to the Common each spring and summer. They help populate the Common and create places without having to associated with an actual 144 structure.
There are numerous buildings in this district which should be and continue to be preserved. Given the density of this district these buildings are architecturally, culturally and economically significant. These buildings include, Mechanics Hall, the Five Cents Savings Building, and City Hall.

5 Interstate Commercial District
Preservations efforts in this district should focus upon maintaining residential character of the district. While the interior uses may change in the area directly adjacent to the Main Street Commercial District, the exteriors of the buildings should keep the residential character which defines this district. Housing the commercial uses in structures that are characteristically residential , allows for a subtle transition within the district between the area which is now mostly commercial and the more eastern part of the district which remains primarily residential.

Summary
Preservation will be a fundamental part of the urban design plan. In the Main Street study are of primary importance is the preservation of uses and activities in the study area. In addition to the loss of industrial uses there is a general loss of business in downtown due to crime and declining shoppers.
The City should be committed to maintaining and supporting the current uses and supporting similar uses which would further strengthen the downtown area. Considering the factors which make the downtown area unique and active these are the ones which should be promoted and preserved.
Pedestrians make downtown areas vital and therefore it is those uses and activities which area geared towards the pedestrian which should be preserved. Housing in the downtown ensures twenty-four hour vitality and therefore housing should be promoted in the downtown. Open spaces in downtown areas provide places where pedestrians can be active as well as passive users. These are areas which should be preserved. Main Street was, in the past, the center of commercial activity for the City of Worcester. Despite the prominence of other areas today, the vitality of this area determines will continue to mark the health of the city for residents and visitors.

CHAPTER TEN COMMUNITY PROFILE
"A vital urban environment is identified by people, not cars, landscaping or colorful symbols and banners." Careful planning strategies in cities such as New Haven, Connecticut and Buffalo, New York have still not successfully or adequately revitalized the downtown districts of these cities.

Introduction
These two cities, are similar to Worcester in a variety of ways. One similarity is that, like Worcester, both of these cities have one or more colleges and universities in and around them.
And like these other two cities, the continued building and upgrading on the campuses, has contributed little to the revitalization efforts in the downtown. Instead, all three of these 13 The most extreme examples of this oversight are found in the planned cities of Brasila, Brazil and Chandigarh, India. These cities did not evolve and develop over time, but were designed as single entities. And because these places were developed in relatively short amounts of time, the needs of the prospective users and residents were not adequately planned for or addressed. More specifically, the designers were unable or were unaware of the many cultural, spatial and human issues and customs which were integral to these communities and their success in the future.
downtown areas continue to be places where people work but not places where people choose to live or shop and participate in activities or a regular basis. They are desolate and can be dangerous in the evenings and on the weekends.
Nevertheless, though, these downtown districts, like the Main Street Study Area, do have potential, despite the numerous problems and issues. First, there is a stable employment base and resident population provided by the colleges and universities located in these cities.
This provides one starting point which planners can utilize and work with. Second, the suburban areas which surround these cities, continue to grow and thrive. In all three cases, there continue to be people moving to the suburban regions of these cities, for new housing, schools and jobs. Planners can address this population and attempt to attract them to the downtown district. In all cases, though, it is and will be essential that planners and designers respond to the needs of the community and create an environment which will attract new residents and visitors to the downtown. Therefore, this section of the report will provide a brief description and analysis of the resident population in the city of Worcester in order to better understand who lives here.
There are many factors which have influenced and led to changes in the composition of Worcester' s population. Three factors which continue to be influential are employment, the fact that there are a number of colleges and universities which are located in the city, and general change in families and family structure which has taken pace in recent decades throughout the United States. Worcester became a large and thriving city during the Industrial Revolution as many people came to the city to find work. During this period, Worcester became a center of business and industry, primarily manufacturing, and correspondingly, the number of jobs available in the city increased. Thus many people, many of them immigrants, came to Worcester to find meaningful employment and to provide a better way of life for their families As a result, the population increased significantly during this period. The largest increase in population took place between 1840 and 1850 when the city experienced and unprecedented 127% increase in population. Such an increase has not been repeated since that time. See Table 10   Census now differentiates between families and households in its categorization.
Using secondary data, including the U.S. Census for a variety of years and other social data, a description of the current population will be presented. The central limitation involved in using this data is that this data is only available for the city of Worcester as a whole. Data is not available for the Main Street Study Area alone. Thus this section of the report will abstract the available data and apply it as representative to the Main Street Study Area accepting all potential problems and inaccuracies with using this larger data set. This information will also be used as the basis for recommendations to be made in later chapters of this report so that those recommendations will more closely reflect the needs of the people who live and work in the Main Street Study Area and the city as a whole.

2 Worcester Population
Just as the population in the city grew in response to the rapid increase in the number of industries and jobs in the city, the population continues to decline as the number of industries There has been a significant decline in the number of people between the ages of five and nineteen in the city. This suggests that people may be starting their families in the city but are moving either to the suburban areas or out of the city entirely once their children reach a certain age . And similar to other cities throughout the U.S., the remaining population in the city  is also getting older.   -0 [J 1980 •1990 found to encourage people to come to the downtown and make use of the goods and services provided in the MSSA and eventually by making the right provisions encourage people to live in the MSSA again. The separation of housing in the city continues to be a problem in the MSSA and the city as a whole. The neighborhoods here do not reflect the mix of cultures which have been identified statistically. A neighborhood mix could be made in the Main Street Study Area.  City officials should continually address the changing family and household types in their policies and urban strategies. Through appropriate services and support groups, the city can assist residents in their struggle to make and keep families and raise children.

4 Income and Residential Housing Permits
The city continues to change in terms of its population. Income levels have risen following the rising cost of living expenses but no necessarily keeping up with the cost of living index. As shown in Table 10.5 and Figure 10.5, while incomes appear to be rising, almost half of the population is still earns $24,999 or below. There appears to be a growing segment of the population earning above $35,000 which is a good indicator of a strong economy for the city. Unfortunately, like the other statistics, those earning more money tend to live outside of the Main Street Study Area, in part due to the limited choices of housing and the public school system in the city.
The number of building permits issued in the city has dropped significantly since the 1980's. See Table 10.6 and Figure 10.6. A moratorium on housing permits was issued in 1989 and thus no housing permits were given that year. Since that year, the decline in the number of building permits has continued. In 1990, 405 permits were issued and most recent calculation shows that in 1994 only 186 permits were issued. And when one looks at only the Main Street Study Area, these are hardly applicable. It seems that the fewest residential     This is not a positive trend if the MSSA is to become a safe a prosperous locale which offers a variety of uses. Strategies need to be put into place provide housing option within the Main Street Study Area and to encourage both builders and residents to consider relocating back into the Study Area.

5 Summary
Planning and design efforts should attempt to address and to a certain predict the needs of the very diverse and changing populations in this community. Appropriate services and uses need to be encouraged to locate in the Study Area in order to maintain the diversity and re-introduce housing options here in the city. Because of the need for greater density in urban locations, the Main Street Study Area can offer housing types which would not be considered in more suburban locations. Types such as loft apartments, duplex apartments and rowhouses and the popular triple-decker types already seen ion other parts of the city. Uses such as a grocery store, pharmacy and elder and day care facilities would be beneficial to existing residents and would attract new residents to housing units in the Study Area. By attracting more visitors and residents into the downtown area, Worcester will be safer and more vital ensuring the continued success of this dynamic community.

Introduction
The Main Street Study Area, described in the previous chapters, is an area with tremendous potential and in the last five years, a number of changes have been made in the area to improve the city as a whole. These changes are intended to solve current problems and provide a viable course for growth and development in the future. The first change was the completion of the Federal Plaza Park, at the intersection of Main and Southborough Streets. This park has increased the amount of public, open space in the downtown area and has been successful in providing a place for pedestrians to walk through and sit in. This park was also cited in a landscape architectural journal as being a positive addition to the city. A second significant change in the Study Area, also now completed and in use, is the renovation of the Worcester Galleria Mall. The Galleria was underutilized and deteriorating in the early 1990' s.
The interior was dark and uninviting and many stores had closed. In 1994, the Galleria was renovated and the focus was shifted from retail to outlet shopping. This was quite an achievement not only because it took advantage of a cutting edge trend, outlet shopping, but also because it revitalized this downtown mall allowing it to be competitive with the existing suburban malls outside of the city without having to directly compete in terms of product lines.
This was also a very ambitious plan because, it has been widely theorized both in the planning and political arenas, in recent years, that downtown malls can not be successful given the advantages which suburban malls provide, including seemingly unlimited free parking and a safe shopping environment. The belief that innovation is still possible and that there are no set rules which can necessarily be applied to all cities is seemingly propelled this project to completion.

Changes which have not yet been realized within the Main Street Study Area
include the restoration and renovation of the original Union Station building; a new downtown hospital complex, the Fallon/St. Vincent's Hospital; a new county courthouse and office project; and the Worcester Convention Center which is currently under construction. These facilities, it is anticipated, will bring new residents, visitors, and businesses into the city. The proposal for Union Station specifies that the building be re-designed into an inter-modal transportation center which accommodates intercity train and bus traffic, local bus lines, taxis, passengers and pedestrians. The architect is also proposing that ancillary space be used as medium-sized convention space for local business meetings. It is anticipated that the new Worcester Convention Center and the additional conference and meeting space to be provided in the Union Station building along with its restoration will increase the number of jobs in the city and encourage business to visit and locate in the Main Street Study Area as well as the city of Worcester and take advantage of the many other services which they have to offer. The last major project currently in progress is the new Medical Cities Project also called the Fallon/St. Vincent ' s Hospital complex. This project, occupying a prime downtown location, will provide much needed medical services to residents of and visitors to Worcester County. It is anticipated that this complex will also attract new business to the city. Plans are also underway to renovate the interior of City Hall which is also in dire need of repairs and general upgrading.
There are also changes expected to be made to improve the public amenities and landscaping elements in the city. These changes will coincide with the new larger developments planned and/or underway in the city. Most of the designs are linked directly to the developments, such as the Hospital Complex designs are to include landscape and amenities within the overall design of the complex. The one project which remains separate from these other developments is the upgrading of Main Street which is a project in progress having begun with the renovation of the Courthouse Park project. Proposed improvements for the remainder of Main Street include planting additional trees, providing new and attractive bus shelters, and re-paving sidewalks.
While there are numerous proposals in the works, there are still many areas of opportunity for the City, to make additional and positive changes. There are also opportunities even in the midst of the current proposals to re-evaluate and perhaps determine whether these proposals, in their current form, are the best course of action for the City. The purpose of the following chapters of this report is to make recommendations and suggestions which will compliment existing proposals, generate new plans and advance the Main Street Study Area as a whole. This plan is intended to enhance the positive aspects of the study area and provide possible solutions to existing problems found here.
The primary goal of this urban design plan is to provide an overall framework in which improvements can be made to the Worcester Main Street Study Area. The case of Worcester requires more than cosmetic changes in order to ensure long-term progress and stability for the city. Thus the urban design plan presented in the following chapters will move beyond simply providing design-related recommendations. This section of the report will provide recommendations which address a variety of issues including social and economic concerns.
The problems affecting the Main Street Study Area as a whole will be discussed at the beginning of each chapter. Then, the problems associated with the individual districts will be addressed in detail. Recommendations will be made addressing each problem and objectives for the districts and the city will be offered. These objectives will provide specific strategies which can be applied to each development district including a procedural list which could be followed. Issues such as revisions to the zoning code, preservation of open space will be preserved and existing street walls in the downtown area will all be addresses.
Recommendations and strategies will attempt to foster and support existing planning and preservation efforts when possible and propose viable changes to the districts.
Circulation problems within the Main Street Study Area will also be addressed in order to improve both the pedestrian and vehicular traffic. Specific recommendations regarding circulation in the districts will be made, both to generate and control pedestrian and vehicular traffic in the Study Area. The recommendations made in this report ideally will make the downtown districts a destination thus encouraging businesses to move back into the Main Street Study Area and encouraging people to come to the downtown area for both residential 163 and recreational purposes. People must be interested in visiting and living in the Main Street Study Area and the city must provide the necessary goods and services to attract individuals, businesses and visitors if this is to be a viable destination. Also circulation through the city must be reasonable and clear to encourage both motorists and pedestrians to make use of it.
Finally the City should be clean, neat and attractive. So, specific design issues in the Main Street Study Area will be addressed and suggestions will be made to improve both the appearance of specific sites in the Study Area and to improve the appearance of the Study Area as a whole. Therefore, all of these issues will be addressed in the following chapters of the report.

Introduction
This chapter is intended to provide the basis around which more specific interventions can be made. Important goals such as increasing the number and improving the quality of the activities found in the Main Street Study Area will be the focus of this chapter.
Commercial uses are tremendous assets to all downtown areas, but other uses and activities also need to be encouraged to ensure the 24 hour life of an urban center. And the commercial uses, rather than taking away from the other activities in the city should contribute to them.
Other uses in cities which attract people on a regular basis include residential uses and cultural programs . Residents need other activities in the downtown to further enhance the attractiveness of the area. Specific uses such as grocery stores and pharmacies are needed by both residents and visitors to an area and are currently unavailable in the Main Street Study Area. Cultural programs and activities can be relaxing and entertaining to residents and visitors.
Recommendations will be made in this chapter which are intended to further the goal of making the Main Street Study Area a vibrant place throughout the day. One objective will be to encourage people to live in the city and to encourage people to visit the downtown area on a more regular basis. Activities, events and uses which will make the Study Area an exciting and attractive destination and encourage people to return here will also be described in this chapter of the report.

Problem:
A number of committees, businesses and city organizations sponsor events in the Main Street Study Area. But very few of the major events have lasted more than one or two years . Over the years events have been canceled or planned for only one year. Thus, there are very few public events, in the Main Street Study Area, that occur on a regular basis, such as every year or every weekend, except those provided in the various civic or public spaces such as Mechanics Hall or the Worcester Art Gallery.

Recommendation:
The city officials need to define a few events which could be sponsored on a yearly basis within the Main Street Study Area. By providing activities which occur on a regular basis which are successful and well attended, such events will develop a core of people who would regularly attend the event and thus regularly come into the Main Street Study Area.
This is one way to begin to make the Study Area a destination. First Night is one such event but because it occurs during a holiday season, it attracts and serves residents primarily.
Unfortunately , many residents often choose to attend First Night in Boston over the First Night Celebration in Worcester because Boston is already perceived as a destination and it offers many more activities. The city should market this event extensively and try to attract high quality venues in order to bring both local residents and visitors here. The smaller size should be considered an asset, allowing groups of people to meet one another and enjoy the festivities as a group rather than as individuals walking around to the different venues, which is what happens in larger cities such as Boston and New York . The positive differences, between the Worcester celebration and those which occur in other cities need to be emphasized.
Events which improve the health and welfare of the residents of the city of Worcester should be considered. Currently there are events held outside of the city, but there are also numerous events which would be appropriate for within the Main Street Study Area.
They include: 1. Athletic Eventswalking and running events such as a walk-a-thon or a 5k run. These events often attract athletes from across the country and the world who are training for larger events or meets. Such events can also be used to promote or fund-raise for a cause such as a local shelter, a disease or illness. These types of events often are sponsored by businesses and organizations which help to legitimize the event. Through these events they are able to make charitable contributions and advertise their company. These events if scheduled on a weekend, would help the local economy by bringing people into the downtown area when it 166 is usually not busy and encourage people to take advantage of the shops and restaurants there.
These types of events are family-oriented activities and thus men, women and children of all ages can participate or watch. Students from the various local colleges should be encouraged to participate in these events also. They can assist in organizing such events and also should be encouraged to participate. The city should consider sponsoring two walks per year and one or two distance running events per year.

Antique/Flea
Marketsa local bazaar where all types of goods can be bought and sold at modest prices. Markets such as these have become very popular because they allow people to come together in a large group and buy and sell things which are still in relatively good condition. These types of markets can attract visitors from many areas and are always a good option for students looking to furnish a dorm room or sell things at graduation.
While antiques offer another type of draw, this market should focus on the more moderately priced items.

Fruit and Vegetable Marketprovide a popular way for local farmers
to raise additional revenues and are an excellent way for local residents to have direct access to fresh and typically less expensive produce. Baked goods are also often included in these markets offered by individuals or businesses with experience. This can be an excellent way for local individuals to advertise their culinary talents. These markets can be offered more frequently than the first two, such as every weekend during specific hours.

Interstate Commercial District
Within the Interstate Commercial District, there are a number of specific changes which can be made to improve this district. The preponderance of available land and new construction allows for dynamic changes to be made and executed here. But all plans for this district meet the goals and objectives established for the Main Street Study Area and the city as a whole.

Problem:
The Union Station Restoration and Renovation design does not yet delineate how best to re-negotiate traffic around the Washington Square rotary and provide the necessary parking here. The latest proposal suggested taking the rotary out entirely and making a four point intersection. The relationship to the Worcester Galleria is also not well defined.
Potential Benefits: The new Union Station complex will bring additional jobs, both temporary and permanent into the city. This facility , by combining the various modes of public transportation, should also encourage residents and visitors to use the public transportation system in the city, which are currently scattered throughout the city.
Recommendation: While the renovation of the Union Station building itself will be a tremendous asset to the city, it needs to be supported by some additional changes to the surrounding area and perhaps within the building itself. (See Proposal Map, Figure 11.1) 1. New Washington Square -Create a new Urban Square green space directly in front of the newly renovated Union Station Building with a short-term surface parking lot adjacent to it underneath the railroad tracks. Relocate the green space from its current location and re-shape it as a square. This will allow the heaviest traffic, controlled by a new traffic light, to flow unobstructed between Grafton and Summer Streets. Also a new more accessible outdoor square will be created where people can sit and wait when the weather is clear.

Marketing/Promotion
it is assumed that this facility will not be selfsufficient financially once developed. All the benefits of this location need to be considered and promoted to residents and visitors in and around Massachusetts. These include easy access to Boston via the new commuter rail extension, access to ski areas and to western parts of Massachusetts.

Problem:
Worcester Galleria Mall is far too upscale given the income level in the city of Worcester and to allow small businesses to locate in the Galleria. Currently there are more advertisements for the mall found outside of the city of Worcester and even outside of the country than one might find in the city itself. During a recent survey of the Galleria a small business owner was in the process of moving out of the Galleria entirely due to the prohibitive rental charges. Unscientific comparisons of prices between the stores in the Galleria and stores in an outlet shopping center in a more affluent part of Connecticut found the prices in the Galleria to be higher on average, partially due to the fact that operating costs in an indoor mall are higher but also because the mix of stores may not be appropriate for this area.
Recommendations: It seems that for any commercial use in the Main Street Study Area, except small shops specifically designed to meet the needs of tourists, should first cater to the local residents in order to develop and maintain a loyal consumer base. This is more likely to ensure consistent profitability in the future than always trying to attract visitors.
1. Developers of the Galleria should make and continue to make a substantial effort attracting a more diverse mix of stores which address a variety of income levels.

2.
Efforts should also be made to provide small business owners with financial incentives to locate in the Galleria.

3.
Encourage other activities in the Galleria which include a variety of people.
For example, the morning walking program which took place in the old mall was a wonderful way to bring people of all ages together and utilize the space effectively during off hours.

Main Street Commercial District
Because of the greater density of this district, there are fewer places where new development projects could take place. Potential opportunities for development do exist in the many surface parking lots which are currently scattered throughout this district. See Chapter 12 for recommendations. But there are other substantive changes which could be made to improve this district.

Problem:
The Worcester Convention Center is a potentially high risk development project for the city. Currently, the Worcester Main Street Study Area is not considered to be a destination point for visitors looking for goods or services. Also it faces potentially sharp competition from other cities which have recently built new convention centers. The Worcester Center, for example, does not have the advantage that the new Providence Convention Center has of being located on a major national highway. But the Providence Convention Center, while having some success attracting conventions, it struggles to attract conventions and visitors on a consistent basis. It also does not have the support of a diverse city like Boston, which also houses a fairly new convention center.
Research is now being done to evaluate the many convention centers which are being built in various cities. Having been functioning for a few years one is now able to obtain substantive statistics on some of the convention center built over the past few years. Most notably is an article from the Economic Development Quarterly which evaluates the Jacob Javits Convention Center in New York. This article is very telling about the benefit of this facility and about its ability to generate activity1 4 . The Javits Center like the Worcester Convention Center was designed to revitalize the central business district and promote economic development in the area. It specifically concludes that while the Javits Center does attract a substantial number of visitors each year, much of its success is due to its Manhattan location. It is also noted that the expected physical revitalization of the area as a result of the 14 Fenich, "New York Convention Center" Economic Development Quarterly Vol. 8 No. 3 August 1994 pp. 245 -255 171 convention center has not yet been realized. But construction of the convention center is almost complete and thus must be dealt with as an existing entity rather than as a proposal which could be changed.

Recommendation:
The developers of the Convention Center need to carefully study the business trends to see what the need for this type of space will be in the future. Probably they will need to be looking at attracting smaller conventions and seminars which reflect the current trends toward streamlining and efficiency in business. Areas for further investigation include: 1. Training Programsthe convention center should look at companies which provide training programs and seminars as part of their on-going employee training.
This could involve computer training and computer expositions which will continue to grow around the country. This could also include the latest trend toward high-tech manufacturing where companies are having trouble finding skilled labor and thus are having to provide their own training courses.

Smaller Conventions
those which bring together diverse fields to share and exchange knowledge and ways of doing business, educating etc.

Centrum Expansioncoordinate the schedule for the Convention center
with that of the Centrum. The Worcester Centrum, already very successful, could utilize available space in the new Convention center as needed.

Support
Servicestend to be less expensive in Worcester and the MSSA than in other cities such as New York or Boston. Use this advantage to promote use of the convention center. These services will need to be expanded, additional restaurants, a grocery store, pharmacy etc.

Problem:
Renovations and repairs to the Worcester City Hall are long overdue and thus the building is in need of many repairs and upgrades. The main problem appears to be, how to re-establish the grandeur of the original building, create spaces which can be cleaned and maintained in the future, and keep the building open to the public during the renovations and in the future.

Recommendation:
The focus of this renovation should be on utilizing quality materials.
Materials which reflect of the age and craftsmanship of the original building but that can withstand the daily pressures which are derived from public use. Particular attention should be paid to the entryways, the one facing Main Street and the one facing Worcester Common.
Obstructions should be removed and the original grand entry design should be articulated as much as possible.

Problem:
How best to revitalize and re-use Worcester Common. This issue has yet to be resolved. Many ideas have been presented such as turning the reflecting pool into an ice ring in the winter but none have adequately suggested how to make Worcester Common a safe and vital space.

Allow Commercial Street to cut through the Common and connect
to Portland Street helping to re-activate Portland Street as a commercial route in the city. The new connector road is to be tree-lined and maintain the integrity of the Common. Different paving materials and curbing such as granite curb stones and concrete street would help to reinforce the fact that this part of the street is more closely tied to the urban park rather than to the commercial areas.

Problem:
The space currently occupied by the Worcester Public Library and the YWCA is not used as efficiently as it could be. YWCA Way is an under-utilized road and moving the library would free additional space.

Recommendation:
Having relocated the library, create a new Athletic Complex with large play fields , basketball courts, and an indoor swimming complex on the site bounded by

Franklin and Myrtle Streets to the north and south and by Salem Street and Worcester Center
Boulevard to the east and west.
1. This center would provide a health facility which could be used by employees before and after work or during lunch.

2.
The play fields could be utilized by local sports teams both after school and on weekends. Unscheduled games could happen on these fields also.

Course and activities would be provided for children and adults. After
school art and athletic programs as well a CPR training and swimming lessons.

A Senior
Center could also be included in this complex. The central location, and proximity to the many modes of public transportation make this a good location.
And this would create a good mix of young and old people who could learn from one another.

Residential Commercial District
Re-designation of uses in this district. There are no specific sites in this district which are of concern except as related to this issue but planners and officials should follow and attempt to guide the transformation of this district. Many of the residential uses should be preserved. In addition, the commercial uses should remain on the eastern edge of the district closest to the Main Street Commercial District with the residential uses on the western side. Becker Junior College can remain as integrated into the more residential part of the neighborhood. But as the commercial uses and the College continue to grow and develop new boundaries may need to be identified.
Recommendation: Develop a more detailed Land Use Map for this district and monitor changes in the amounts of commercial and educational uses. This will assist the city in planning for potential changes which could occur in this district in the future. Work with planners at Becker Junior College to better assess and keep track of what the colleges spatial needs may be in the future.

Problem:
There is insufficient housing in the Main Street Study Area to provide the city with safe and appropriate evening uses. The Main Street Study Area specifically needs activities which take place throughout the day rather than simply from nine to five. One of the basic problems with the Main Street Study Area is the lack of housing and the decreasing number of residents found in this area. As shown in the census data, the actual number of residents in the downtown area has been declining. This has greatly reduced the amount of activity which takes place in the Main Street area after working hours. The reasons for this problem are numerous and reflect the great changes which have occurred both in this city and in others throughout the United States. First there has been a significant change in family structure. The changes in the family structure as seen in Worcester show that there has been an increase in divorces in the city and so that there are many more single parent households. There has also been a general decline in the average income level within the city of Worcester as more affluent families continue to move into suburban areas. Thus, there is a greater need for affordable housing, rental units specifically in the city.
Housing which addresses all family types and income levels should be provided in the Main Street Study Area, both because of the need but also as a means of revitalization of this urban downtown area. The new hospital complex will also create a need for additional housing close to the hospital, to serve the needs of the employees who often work very long shifts. The demand for housing by hospital personnel could encourage residential development in the Main Street Study Area and could encourage other workers to back into the Study Area.
General Recommendations: 1. In general, a variety of housing needs to be provided for a variety of income levels. This encourages diversity in the resident population which is more consistent with the diversity which cities tend to have particularly in downtown locations.
2. Existing structure should be preserved as much as possible. The downtown area has a variety of interesting structures and spaces which already exist above shops. These are ideal living spaces particularly since the nature of the family has changed so dramatically in the past few decades. Therefore, existing buildings in the Main Street Study Area should be renovated maintaining the existing character of the building. The buildings should not be dramatically altered in terms of character and appearance and so materials and colors should be selected carefully. A certain amount ofrespect must be paid to the context in which this housing is to exist so as stated previously if the structure is on a street with a large amount of commercial activity, then the housing should be placed above and the commercial activity allowed to continue at the ground level.
3. Low Income housing should be provided also in the downtown area. But as is the trend in the suburban communities, the low-income units should be integrated in with middle and upper income units. This helps to create more diverse communities and also assists the low-income resident by rather than branding them with the label low-income. One example of a low-income project which has been unsuccessfully integrated into the community, is the Plumley Village Housing Project, to be discussed later in this section.

Problem:
Existing housing stock is poorly maintained Recommendations: Provide owners with financial incentive to upgrade upper stories of existing buildings into new housing. Encourage owners to maintain the exterior craftsmanship of the original building.

Interstate Commercial District
The Plumley Village Housing Project in its current state does little to help the image or the reality of housing and specifically low-income housing in the Main Street Study Area. There is often trash overflowing from the various dumpsters which are scattered throughout the parking areas. The buildings themselves are made out of brick which requires little maintenance but the brick construction differs greatly from the wood frame construction of most housing in the city and makes the project stand out. There is no expectation or opportunity for home-ownership in this complex so residents provide little assistance maintaining the interiors or the exteriors of the buildings. The poor location, directly adjacent to Interstate 290 also hurts this project.

Recommendations:
1. Create a housing neighborhood using much of the land in the northern portion of the Interstate Commercial District including the Plumley Village Housing Complex. The neighborhood would be called Washington Square. Provide specific guidelines for new housing construction. Using research from other cities, the guidelines could be developed by the Urban Design Committee (to be discussed in the next Chapter) in conjunction with the Planning Department and with final approval from the City Council. There would need to be guidelines to address the various housing types from high density to low density, from high-rise to single family . These guidelines could be very specific, to help preserve the appearance of the city and provide adequate facilities for residents.

Incorporate small gardens and yards and separate entryways as
much as possible to create privacy and give residents further ownership opportunities. Provide community garden areas and a playground for children .

Renovate buildings in Plumley Village complex only if they can be
feasibly integrated into the new neighborhood. It is more important to create a neighborhood atmosphere in this district than it is to save any of these buildings.

5.
Create block of support services for the new neighborhood. As indicated on the proposal map this would include, a supermarket and pharmacy, day care services, a coffee house and a restaurant such as a Chili ' s.

. 6. 2 Main Street Commercial District
There is the opportunity to create new housing on some of the upper stories of buildings in this district. This opportunity should be taken where feasible. Some of the potential lots for housing are identified on the Proposal Map.

6. 3 Residential Commercial District
This district is already mostly housing. The emphasis in this area should be on upgrading the existing housing stock and maintaining the overall quality and character of the district. Some of the housing in this district needs basic upgrading and repairs. The city should develop informational sessions for home owners which offer information about how to do basic renovations, how to hire professionals and identify the various sources of funding which may 179 be available. When possible the city should work with local business owners to create new funding sources. Attractive neighborhoods will attract new residents and will be good for business.
Problem: Some of the housing in this district are not well maintained.

Recommendation:
Informational sessions and programs should be made available to homeowners both from the public and private sector. These programs can provide instruction and information about how to maintain, upgrade and do renovations. Other programs which encourage and support home ownership would also be beneficial. People tend to take better care of home that they own rather than rent. Introduction The circulation issues identified chapter three of this suggest that there are opportunities to improve the overall traffic patterns and parking which currently exist in the Main Street Study Area. The problems identified in the Study Area are not insurmountable and in this chapter of the report recommendations will be made to improve the existing circulation and prepare for the future.

Examples of Signage Available from Numerous Manufacturers
Recommendation: The issue of traffic and congestion in cities being so paramount, it is vital for the Worcester Transportation Department to be involved throughout the process. There needs to be a more open dialogue between the transportation department and these groups in order to improve the road conditions in the city of Worcester. 1) When a development project is presented to the City and moves forward and representative from the Transportation Department should be assigned to the project in order to provide input and information.

Problem:
On certain streets in the city there is a great deal of congestion due to the increasing number of automobiles and the lack of directional information provided to the motorist and pedestrians.

Recommendation:
1. Encourage prompt maintenance of all city amenities such as street signs. This includes replacing damaged and stolen ones promptly and repairing signs when appropriate. The minimum requirement for street signage should be that all intersections have street identifying the names of the street one is on and identifying the crossing street. These signs guide both pedestrians and motorists more efficiently through the city which can help reduce the amount of congestion on city streets and therefore they are extremely important. The proposed entrances are shown in Figure 11.1 . It is recommended that in these selected areas substantial landscaping, including flowers , trees, and signage be placed here which tells visitors that they are entering or exiting the central business district. For example, signs which say "Welcome to the City of Worcester" and which have a symbol which represents the city used in these locations. The symbol could be used on signage throughout the Main Street Study Area to inform visitors that they are still in the downtown. Residents could be encouraged to participate in this design process. A contest could be held for the best phrase or symbol reflecting the City of Worcester and a prize given to the winner.

4.
The most important aspect of defining these entrances is that they all be done in the same way. Meaning that each has the same sign using similar materials and similar types of landscaping so that all the entrances look alike. By relating the entrances to the downtown area the city then will begins to read as a cohesive unit. This will help define an image for the city and will provide directional assistance to residents and visitors.

Problem:
Lack of clarity and comfort for those using the public bus transportation system. Signage at the bus stops is small and difficult to read . There are very few bus shelters and those which do exist are not adequately maintained. There are rarely additional public amenities provided near bus stop locations.

Recommendation:
The key to providing good service to a customer is understanding what the customers needs are. Therefore, it is crucial that the bus company survey its ridership periodically. While surveys are currently done, the ones obtained for the purposes of this report provide little of the type of information which would be necessary to ensure the comfort of the rider. Some key questions which should be asked of riders is age and physical health.
Many of the riders of the Worcester bus lines are elderly and/or students under the age of 18 years old. Therefore, comfortable yet durable waiting areas are desirable. Strong graphics which effectively communicate information and provide schedule information need to be integrated in at all bus stops. This will better assist both the elderly and children but also visitors and new riders to the system as well as encouraging continued ridership.
1. The first issue is the lack of clarity of the signage. The old signs identifying the bus stops in the City of Worcester are the same color and of similar design to the other signage found on the streets specifically the "No Parking" signs int he city. This can be confusing to both pedestrians and motorists. New bus stops signs are appearing on city streets but they are not widespread yet and although their design is more up-to-date still not enough information is provided to riders.

2.
The city needs to develop ways to provide riders with bus schedule information. This involves a two step process. First as is appearing in other cities, are large permanent stands which provide enlarged schedule information. These stands should be designed in such a way that they can not be damaged or tampered with but, also should not be so permanent that they can not be changed if the schedule for the bus changes or if it becomes 185 discolored and not readable for some reason. The simplest idea is that of a permanent stand which can be opened and an enlarged version of the schedule inserted. The outside of such a stand would be made of some type of strong transparent plastic, through which a pedestrian could read the schedule but not touch it.
3. Provide comfortable bus shelters at major bus stops. Although one does currently find bus shelters in the City of Worcester most are not properly maintained and do little to shelter a person waiting for a bus. particularly if the person is waiting in extreme weather. Therefore it is recommended that existing shelters be replaced and additional shelters be placed at many locations in addition to the locations planned for in the Streetscape Plan.
Bus shelter designs take many forms some of the better examples are seen in the following exhibits. What all of them share are durable seating areas, partial enclosure of the seating area and relevant bus schedule information. See Figure 12.2.

Problem:
The absence of a central transportation facility in the City of Worcester. As noted in the second chapter of this report, currently the various modes of transportation are separated throughout the city. The Amtrak and Greyhound bus terminals are not even located in the Main Street Study Area. Therefore, the city is missing an opportunity to bring more activity into the downtown area and further encourage businesses both now and in the future to locate in the Worcester Main Street Study Area.
Restoration and renovation of the Union Station building is currently in the design stages but when this report was started the local government administration supported demolishing this historic building. Fortunately, the decision was made to restore and renovate the structure. Renovating the facility will involve making the building structurally sound, painting. etc. This structure in addition to being a historic landmark, has an ideal location.
Ideally located in the Main Street Study Area, it is also directly across from the largest parking area in the city. This parking structure which is currently under utilized would make it unnecessary for additional parking to have to be provided when renovating the structure. The Old Train Station Building is one of the city's most beautiful buildings, and example of the

Examples of Bus Shelters And Other Public Amenities
American Beaux Arts Style, and the it is inconceivable that once administrators were considering tearing it down.

Recommendations:
1. This facility should become another major connection and drop location for the Worcester city bus lines. Buses which come from the outlying areas and suburban townships could drop commuters here and other buses which specifically go to Main Street and downtown would pick up passengers here.

2.
Options other than convention and conference space should be considered again for the remaining spaces in the building. This facility should support the new Convention Center without competing with it directly for users.
3. Use of the (newly started) commuter rail system, which currently provides three trains to and from Boston each day, and Amtrak should be further encouraged. Ridership on the commuter railway system has been steady but use of the Amtrak trains has declined in the past few years. When the station is completed, new rail lines to destinations with little service should be encouraged, such as ski areas in New Hampshire and Vermont, points of interest in Main and New York. The central location of the city of Worcester should be used to the fullest extent to increase ridership on the trains and make this station a successful node in the New England transit system 4. Offices for these modes of transportation would be provided in the building and additional office space could be leased out to increase revenues both to maintain this building and for the city.

It is recommended that this building be owned and controlled by the City of
Worcester and the local transit authority. The city would benefit from profits from this structure as well as assure that all services are provided at reasonable rates to all users.
6. Washington Square should be re-designed, as indicated on the Proposal Map, Figure 11.1, to improve the traffic flow near the train station and still maintain an open green space in front of the Union Station building itself. A short-term parking are could be placed next to the green space and across from the Galleria as shown on the map.

7.
To encourage pedestrian use of the area as a whole, a pedestrian crosswalk should be designed to link the train station to a newly proposed entry into the Worcester Galleria. This walkway should be at ground level rather than above ground. Connections such as these allow access and give businesses more choices, locating either in Union Station or the Galleria, since customers can easily access both facilities.

8.
Renovations should be performed in such a way as to provide adequate space for buses. This includes turnaround space etc. Research should be done particularly assessments of other successful and unsuccessful bus stations to determine available options and assist in selecting the best option for this facility.

Benefits:
The benefits of such a transportation center are many. The most important benefit is that it centralizes all transportation modes and make them more efficient and accessible to users. This should help to increase ridership on the various modes of transportation. It also provides a businesses with an incentive to locate in the city, given the ease of access for workers and consumers. the incentive which such a center would be to businesses attempting to choose a location for their businesses. In the past we have seen many large businesses in particular moving out of the City of Worcester, because of the decline in the city and the limited parking availability. By providing a variety of public transportation alternatives into the city which are reliable, more people would look to the city for job opportunities and businesses would also look to a city where workers have easy accessibility to the office as a place to locate.

Problem: Lack of pedestrian amenities in the Main Street Study Area.
The lack of pedestrian amenities in this district discourages people from walking through the city.
Give the small size of the Study Area, more individuals could park their car and walk to a number of different destinations rather than driving to each. Unfortunately the lack of attract amenities along the streets and sidewalks discourages such activity. The Worcester Common attracts many people because it is a public green space which is centrally located and because it 189 is surrounded by businesses and services. yet even it is not used to its fullest potential because there a still too few amenities provided here. In addition, those which are provided are not well maintained.
The fact that a central green space exists in the City of Worcester has in the past encouraged pedestrians to use the city and to gravitate towards this green space, particularly since there is very little open space in the downtown area. Although pedestrian activities such as shops and businesses still encircle this green space it is most closely encircled by the roadways and automobile traffic. Pedestrian need to encouraged further to utilize this open space. Successful pedestrian ways must be located near a focus of activity.

Recommendations:
Expand the Streetscape 1 5 project to include more of the pertinent streets in the Main Street Study Area. This is an excellent program to begin the beautification of Main Street and the downtown area as a whole. But a larger plan for street and sidewalk improvements needs to be in place even if funding is not yet available or if improvements will be made by developers of new projects. A plan for the Main Street Study Area as a whole should be drafted which documents all of the streetscape changes which the city hopes to make in the future. A plan which shows desired improvements for all streets should be made should so that as development of the three districts progresses, the changes made will be coordinated with the overall goals and objectives of the city.

Problem:
The Midtown Mall. Recent upgrades to this building have taken away a functional and unique pedestrian way between Mechanic Street and the Worcester Common.
Passage through this building has been limited in order to control loitering in the space but the upgrades have not improved the building visually. The space is still not adequately maintained, and currently is not an attractive addition to the city. 15 The Streetscape project is a $10 million project whcich will beautify the sidewalks along Main Street between Federal Square and Lincoln Square. New bus shelters, curbing, planters, benches, antique lights and other amenities will be used in this area to improve the appearance of this section of Main Street similar to that shown in Exhibit .. City Hall is to be a focus for the city and for visitors, it should be cared for and present a positive image for the city. Currently the City hall reflects the despair of the city. It is a historic building yet, it is not in suitable condition to be toured by visitors to the city, students etc. The City of Worcester needs to put its best foot forward and this is best done as seen in city's throughout the country by maintaining and even overemphasizing the City Hall building.

Design a logo and signage board for the Main Street Study
Area. The signage can be placed in pedestrian ways and in other locations around the Study Area, providing needed directional information to important sites in the downtown Study Area.

Benefit:
The city will have a centerpiece which will assist both residents and visitors coming to the city. It will show civic pride and also increase the moral of the city workers. It will make City Hall and the Worcester Common an attractive destination where people can come and relax and do business. There will also be tremendous economic benefit to embarking on this project. Executing repairs to building and grounds now will prevent the need for more expensive repairs in the future.
Problem: Pedestrian activity and traffic is not encouraged in the districts.
Recommendations: Provide those amenities which assist both pedestrians and motorists and encourage people to walk through the city once they arrive. These include a number of important services and amenities: 1. An central information area. The information center for the city is currently located in the newly remodeled Worcester Galleria. Given the need to create a focus for the Main Street Study Area and the city as a whole it seems that City Hall would be the better location for such a center with a secondary center in Galleria for use in the evening and on weekends 2. Seating areas, trash containers, telephones, planters and informational signage should be designed and planned for areas throughout the three districts to encourage visitors to walk through the city rather than drive. Benefits: Pedestrian traffic is a sign that there are desirable goods and services in an area and thus is a measure of economic vitality. More pedestrian activity and adding and improving the appearance of the amenities provided in the districts could attract new businesses into the area, contribute to the vitality in the districts and improve the overall appearance of the streets. 194 Recommendations:

All renovation and new construction projects in the Main Street Study Area
should provide specific provisions which encourage pedestrian use. Spaces provided for pedestrians such as sidewalks should be designed with the necessary amenities to ensure comfort and safety. These include: trees, benches, plants and/or trees, telephones etc.

2.
Using attractive paving materials which distinguish this as a walkway rather than a roadway . Understanding the durability of the materials selected and how to them will be most important. For example materials such a brick or cut stones are must be properly laid in the first place and later maintained so that the walking surface remains smooth, comfortable and safe to walk on. 6. Signage to other needed pedestrian services should also be provided in pedestrian ways. Signage to restrooms, information centers or major attractions in the city.

Benefit:
Pedestrian pathways are essentially the last major transitional space between the building and transportation ways. Treating them as such will improve the appearance of the

Problem:
The public amenities provided in the City of Worcester are poorly maintained and are not sufficient in quantity or quality to satisfy the needs of the residents, workers and visitors to the city. Currently as part of the Streetscape design program amenities have been earmarked for Main Street and some adjoining side streets such as Front Street.

Recommendations:
The city needs to do a more comprehensive study of the Main Street Study Area and determine what amenities need to provided in the Area as a whole . Such future planning will ensure that new developments, redevelopment and renovations have some basic guidelines to follow in terms of providing such amenities. Specific places where landscaping is appropriate will be identified in the survey. These natural elements are of particular benefit because they assist in reducing the amount of carbon in the air and they can be used as a screening device for surface parking areas in addition to beautifying an area. See Figure 12.4.

. Again consider involving the public in fundraising efforts in order
to give the public a tangible stake in the longevity of these amenities. This could be done in a number of ways such as having raffles, give-aways etc. Also donations from businesses should be sought. This could be like adopt-a-tree or adopt-a-city amenity, usually one in the same block where the business is located.

5.
Maintenance, although often overlooked in planning project will be integral to making sure that these amenities remain available and safe for continuing use.
Maintenance will ensure that this investment of resources is well used and continues to be used as planned. It will make sure that these elements continue to make a positive contribution to the area.

Problem:
There

Street Sections
Trees and Landscaping enhance the beauty of the area of the buildings and the city as a whole.

Problem:
Parking and the Lack of activity in the Main Street Study. The city needs to take a stance on the issue of parking in order to re-vitalize the city of Worcester.

Introduction
The design principles which are recommended for the Main Street Study Area will be discussed in two ways. First, a series of general principles will be outlined which apply to a variety of buildings and all three districts equally. The second part of this chapter will identify specific buildings in each district and describe current conditions, both its positive and negative impacts on the street and suggest ways to enhance and improve the appearance of the building and the block.

Problem:
There are insufficient services in the district to support uses 24 hour activities such as the new hospital and any residential uses which may develop in the area. Services such as a supermarket, a pharmacy which is open in the evening, and evening cafe's or ice cream parlor are not currently available in the Main Street Study Area. The City has supported efforts for night-life in terms of bars and dance facilities but more family oriented activities need to be provided if families are to be encouraged to return to the downtown.

Recommendations:
1. As stated in Chapter Ten, the city should actively work to encourage a major supermarket chain to move into the Main Street Study Area. This will provided a much needed service to existing residents and could be a catalyst for encouraging future residents to come to live in the city. Since renovated, the Star Market on Boylston Street an the new Bread & Circus have seen tremendous success in terms of their patronage. The Star Market operates on a 24 hour basis serving the needs of students and residents alike. Great 203 incentive will have to be provided by the city for Worcester than perhaps were needed in Boston. The city should work with a potential chain on issues of security and safety so that the business can be profitable as well as a much needed service to residents and visitors alike.
Studies of supermarkets have shown that it is cheaper and more profitable for them to operate in suburban locations. First there is potentially less crime in most suburban areas so there will be potentially fewer incidence of theft. In addition access is easier since there are more open spaces which allow for parking and delivery bays. These factors make the suburbs more attractive for grocery stores and markets. Thus it is necessary for the administration in the City of Worcester to provide the incentives necessary to encourage such businesses to locate in the city. This may include things such as tax breaks and other financial incentives as well as security for the store. The selected location for a supermarket chain is near the local police station which could make it easier to encourage such a development.

2.
Other services which will be required to support housing in the city will include things such as day care facilities, open space areas which provide play areas as well as assisting in improving the overall air quality an area. Schools churches community centers etc. are also needed and many of these things already exist in the downtown section of Worcester. These uses should receive the continued support of the city and enhanced as much as possible.

Urban Form
The overall visual impression of the City of Worcester from a distance and up close is an important component towards making the city as attractive and viable as possible.
Therefore, a number of objectives have been identified towards improving the overall urban form of the downtown area. Worcester as described earlier has a hilly terrain and the downtown distinguishes itself by the height and density of the area. In this section it is the aim of this report to provide guidelines which will foster a coherent pattern of development in the downtown area. This involves influencing new construction so the height, bulk and overall appearance of the buildings, to a certain extent, conforms to the overall pattern already established in the city through the decades . This involves avoiding "jarring" contrasts which could potentially upset the pattern of the city, taking special care when developing the edges of individual districts, using special care when reviewing plans for tall buildings. Bulk controls should consider the three basic views of the building which are the view from the street or the closest view, the view of the middle section of the building and the skyline view of the top of the building.

Height and Bulk
1. Relate the heights of buildings to important attributes in the existing city pattern. This involves having height controls which support the natural terrain of the city. Clustering taller buildings in the Main Street District and reducing height levels in · the to adjacent districts. This will enhance the commercial district as both the core and visual center of the city.

2.
Encourage designers and developers to detail the massing and facade to create buildings which visually interesting . By encouraging this, building mass can be reduced, making the building a less overpowering addition in the city. In addition the developer has the opportunity to address the three ways in which the building will be viewed, that is from the street, the middle section and from the top and can contribute significantly to 205 the appearance of the city from all three of these views.
3. Limit the scale of buildings so that they can be well integrated into the existing street fabric and so that they will encourage pedestrian use in the area. in order to make a stronger link between these two districts. Siting the buildings close to the street will help to create a sense of enclosure along the street creating a strong street edges.
With proper scaling of elements such as awnings, trees etc. , this will also make the sidewalks more pleasant for pedestrians, giving them continuous rows of shops to walk along and browse in . It will also improve the quality of the streets making them appear less vast and empty.

Loading Docks and Trash Storage
Locate loading docks and trash storage elements away from public view and streets where possible. The rear of a parking lot is often the best site for these elements in order to avoid congestion and traffic problems. Dumpsters should be screened from both adjacent streets and avenues and from the parking lot itself. Attractive yet functional screening elements are imperative here since these areas are usually used a great deal and difficult to maintain. A combination of elements which are easy to maintain and improve are recommended here. Wood and concrete are examples. of materials which are strong and yet easy to maintain and replace or patch as needed.

Landscaping and Pedestrian Elements
Landscaping and pedestrians elements should be integrated into each district to make them more attractive and separate unrelated uses. Landscaping elements such as pants, trees and flowers, add color to an area and integrate the natural environment with the paved. In addition, these elements improve air quality in downtown areas by absorbing a significant amount of the carbon dioxide in the air. Screening elements not only separate unrelated uses but also interrupt and create unusual views. Lastly pedestrian elements such as telephones, trash containers and mailboxes help to enliven the street and encourage pedestrian 209 activity along it.

Buildings and Facades
New structures and renovated structures should reflect the architectural character and overall image of the district and the city as a whole. Consistent patterns in terms of height, massing, composition, building materials, signage and colors will contribute to the visual cohesiveness and the overall attractiveness of the district. While it is not necessary to replicate the past, changes should respect the essential patterns an qualities of the district as a whole.

Building Height
Building height standards should be provided in the Urban Design Plan in order to ensure that the positive qualities of each district will be enhanced. The Interstate Commercial district can have taller building heights ranging between 8 and 10 stories. This will help to increase the density in the district and will create opportunities to address the raised highway which borders the district rather than having the buildings be dominated by it. The Main Street Commercial District should allow building heights between 5 and 8 stories for new buildings and existing 210 structures should not be renovated beyond their existing building heights. This will allow the overall character of the existing district to be maintained and create a pleasing transition between the buildings in the two adjoining districts. The Residential Commercial District should have a maximum height allowance between 3 and 4 stories. This will help to preserve the residential nature of this district while allowing for new construction and renovations as needed.

7 Massing
The massing of the buildings also should vary between the districts. The Interstate Commercial District can accept larger building masses for projects having so much vacant and undefined space. But these masses should allow for multiple readings. Thus within the larger building mass should be smaller components which help in creating pedestrian spaces or a break down of the

Building Materials
Building materials should be specified by district. Generally a larger variety of materials can be accepted in the Interstate Commercial District while slightly fewer in the Main Street Commercial District and the most limited number in the Residential Commercial District.
Residential District should be restricted to wood construction with accent materials more varied to include brick and stone and other materials.

Signage
Signs should be compatible with the building, neighboring buildings, and the district as a whole. Signage should be clear and legible. While these should serve as direct advertising elements, they should not attempt to communicate too much information. Instead a carefully designed building sign and storefront display should communicate necessary information to potential customers. Signs for a series of businesses in one building should be related in terms of their size and location. While they need not be exactly the same, the colors and lettering style should be complimentary and reinforce the information rather than competing with one another.
There are four types of signage which are seen in urban areas. These are : wall or building signs, projecting signs, window signs and free-standing signs.
1. Wall or Building Signslie flat against the building wall and should be used most of the time. These signs should be designed to be integrated with the building facade and the signage of adjacent stores when possible. When possible similar lettering styles and colors should be used in for uses within the same block to create a coherence along the block.
2. Projecting Signscan be used periodically. When used too often they become difficult to read and create too many interruptions on the block facade.
3. Colors -Although color is a matter of taste, to many bright or fluorescent colors can clash and make the facades cluttered and unattractive. Color schemes should be studied for the block facade as a whole and business owners within the same block should try to use colors within the same color family. The city should also designate certain colors which need to be approved before they can be used on the exterior of a building.

13.5.1.a Commercial Building Facades
The commercial facades should be of two types. There should be larger commercial buildings in which the entire building reads as a commercial element. In this district this will 212 include the new hospital, Union Station and the new hotel and casino proposed in this report.
These structures will read as integrated buildings with the front entry having primary emphasis and any additional entries secondary importance. The signage will be integrated into the overall architecture of the larger structure and with some directional signage not linked to the structure provided along the city streets.
Smaller commercial building uses which occupy only the ground floor of a larger building or are located in buildings which are 1-2 stories high will follow the same recommendations provided in the following section for the commercial facades for the Main Street Commercial District. (See next section)

13.5.1.b Residential Facades
Should be small scale designs combining townhouse units with low to mid-rise condominium units. The front yards should be landscaped to make a positive visual connection with the streets and the backs should be a combination of small private yards as well as shared green space. Example of a very successful residential community which is a positive addition to its city is shown in Figure 13.1 Attempts should be made to provide residents with private space.
Thus condominium and apartment residents should have balconies or if at ground level direct access to a small yard space. Townhouse residents should be provided with front and back yard space.
This housing should primarily be constructed out of wood in order to relate it to the adjoining residential neighborhood. Other materials should also be integrated into this project including brick and stone. This materials can be used more freely in the larger low and mid-rise buildings which are perhaps steel construction.
The massing of the buildings should allow for multiple readings from an individual townhouse unit to the housing project as a whole.

Plumley Village .
The facades of these buildings should be integrated into the new housing district which is proposed in this area. These buildings do not contribute in a positive way to the overall image 213 Figure 13.1 Example of Urban Housing in the City of Pittsburgh of the district though, and have almost no architectural detailing which is worth saving. Thus it is possible to alter the appearance of these buildings dramatically or remove them all together in order to create the new residential area as proposed.

Union Station
It can not be stressed enough that this building is integral to the history of Worcester and could be a major component in its revitalization in the future. The facades should be renovated to their original grandeur with great attention paid to the detailing. Windows similar to those of the original building should be used rather than newer cheaper versions, this will significantly detract from the appearance of the building. If feasible the towers, part of the original design of the building, should be re-added to the building. This would give the train station more of a presence in its location next to the raised interstate highway and in the city as a whole. It is important to avoid an all too common mistake made when renovating older buildings of using materials which are too modem and thus neither copy nor complement the character of the existing structure.

Main Street Commercial District
Shop facades provide potential customers with their first impression of the store. Thus it is important to improve the store fronts and building facades in this district, both to improve the overall appearance of the district and to encourage people to shop here. Styles and consumer preferences continue to change so it is important that buildings are maintained and upgraded regularly.

Problem:
Not all of the Commercial and public uses at the street level are not as well designed and attractive as they could to create a continuous public zone along Main Street. 3. The placement of the signage is also extremely important. In general, there are two areas which can accommodate the signage. They are just above the shop windows and above the entire shop level portion of the building was indicated in Figure 13.2 4. Store fronts, particularly at grade level, should be mostly transparent glass, allowing pedestrians to see in and view merchandise or exhibits. For example, city officials could decide that storefronts should be 75% transparent glass because blank walls add to a pedestrians discomfort.

5.
Because store fronts are to be primarily glass, a great responsibility is then placed on the shop owner to provide interesting and provocative shop displays which highlight their service and merchandise. Common mistakes made by shop owners include cluttering display windows with paper signage to advertise sales. This can detract from the appearance of the shop facade and the entire street facade.

13.5.4.a Commercial Building Facades
Problem: The scale and dimensioning of commercial facade elements are not well considered in many cases in the district. Sample Business Facades Signage is Designed Into Overall Facade distinguishes and/or differentiates the building from other buildings. The elements in the upper ad lower stories should be coordinated so as not to create too strong a division .

Divide the building width into smaller bays.
The divisions between actual buildings should not read at the ground level, instead clear dividing elements should be integrated in the storefront designs to differentiate individual stores. The architecture of the building prevailing on the upper stories, will read and divide buildings on the upper stories.
3. Coordinate the signage for multiple stores located in one building to create coherence and continuity along the larger street facade.

Integrate awnings and recessed entryways into the storefront design.
Project display windows, never recess them. This will attract pedestrians, creating smaller scaled elements on the facade for reference and add additional color to the facade.

The backs of these commercial stores should be designed as a second
front entrances and should include display windows and awnings when possible.
Sidewalks should also be incorporated when possible to establish an unimpeded pedestrian zone in this area between potential traffic and/or parking. These back door entrances become particularly important in downtown areas, because they often can allow motorists to park close to their destination. In addition these back door entryways often provide a secondary handicap accessible entry to the store. 6. Always provide screening around dumpsters and storage areas. This helps to improve the overall look of the store and the adjacent street. Screening elements include plants and trees and fencing elements. They should be designed both to create a visual barrier and for security.

Problem:
The Worcester Centrum because it has no windows at street level is a very oppressive and for pedestrians. Also because the combination of materials and colors used in the exterior cladding is so different from those used on other buildings in the district, the building stands apart.
Recommendations: Human scale elements need to added to the facade of this building to make it a more attractive and pleasant to walk by.
1. The building should be renovated and windows placed at street level. By placing smaller elements within the larger facade, this will help to reduce the scale of the building at the street level. With windows designed into the facade, the building will look less like a block from a distance, appearing more three dimensional.

2.
Landscaping elements should be placed along the edges of the building so that there is a transition space provided between the hard materials of the street and sidewalk and those of the building itself.
3. Signage should be designed for the building. The signage should be provided at two scales. Smaller signage for pedestrians which identifies the Centrum and what events are currently or will be taking place. The large digital billboard signage in the main entry is easy to change and maintain but does little to improve the appearance of the building.
Signage could be used in the upper portion of the building to reduce the scale of that portion of the facade.
3. Re-design the entries along Foster Street so that they are more inviting.
Plants and railings could replace the concrete walls which frame the stairways or the entry wall could be brought out rather than being recessed.

Recommendations:
The rules outlines above for commercial building facades are appropriate here and could be applied. But the larger problem is how to improve existing facades which can not be easily changed.

It is important that owners work with the city and other owners
particularly in their block to improve the overall appearance of their own buildings and the block as a whole. Owners should think to the future when building or renovating buildings, asking a series of design-related questions. Can the selected design be easily changed and upgraded to accommodate the needs of new tenants and users? What is the appropriate combination of permanent and applied elements? How does the selected design work with the neighboring building and street facades?

2.
Appropriate urban design guidelines should be established by the city in order to control changes in the street facades and to assist owners in making decisions.

Fleet Bank Building
Glass towers can be both an asset and a liability to an urban area. The Fleet Bank Building is an asset to the city, 'sculpturally' marking the downtown Main Street area and making a beautiful gesture towards the sky. The height of the building enlivens the skyline and simultaneously suggests that this city is about the future and progress. Problem: At the pedestrian level of the Main Street Study Area though, this building is less successful. There are no human scaled elements on this building which make this a pleasant building to walk near. In addition, reflective is used in most buildings of this type because it minimizes the amount of heat and light that enter the building. Reflective glass is distracting at the street level because it does not allow pedestrians to see into the building like other types of glass do. While helpful to those working on the inside, they do not feel like they are constantly on display , at street level the reflective glass has the same effect that a solid brick wall has. Recommendations: Because this building is centrally located and is adjacent to a major bus stop, it is important that an attractive and inviting pedestrian environment be created around this building. Applying amenities, such as awnings , to the building itself is not an option due to the nature of the material and the overall design of the building. Instead the areas around the building should be re-designed to attract pedestrians users.
1. Amenities should be provided in the areas surrounding the Fleet Bank building including telephones, benches and trees. Trees and plants should be placed at the edge of the building in order to provide a scaled elements which will be more inviting to pedestrian.
The trees can also be used as a screening device. This should be done particularly along the facades of the building which face Main Street and the southern green space adjacent to the building.

Remove the fencing around the adjacent open space. Additional trees and
plants, benches and trash containers should be placed in this green space to encourage public use.

Residential Commercial District
Although there are fewer architectural problems in this district. It will be important to monitor changes and have established guidelines to control changes here also.
Problem: There are few systems in place to monitor and control changes in this district.

Recommendations:
1. Maintain the scale and pattern established by the existing buildings when approving new construction. Greater efforts need to be made to understand some of the patterns which exist here and maintain them. Currently many of the newer renovations and additions to this have achieved varying levels of success in terms being integrated into the existing context .

2.
Existing structures it is important that planners understand how it was originally designed and how it has changed in addition to understanding the quality of the street. Then changes to the building can be made more sympathetically. Commercial District but also apply to the commercial portions of the other two districts.

PART FOUR IMPLEMENTATION MECHANISMS
Sound recommendations and the potential benefits of a good Urban Design Plan are insignificant if in the end the plan can not be executed. The implementation of the plan depends entirely on the support of the administration, the design of the legal statutes and the ability to finance the proposals. Below is a current list of the municipal departments for the city of Worcester. It is a basic outline of the various administrative departments and the person currently in charge of that department.

CHAPTER FOURTEEN ADMINISTRATIVE MECHANISMS
There purpose of this chapter is to explore ways to improve the administrative mechanisms in the City of Worcester. This will allow changes to the urban fabric to be made and help to ensure that those changes meet the expectations of the City and its officials.

Office of Planning and Community Development
Problem: The Worcester Planning Department which once had complete control over planning issues for the city has lost much of its control as many of the plans are being implemented. The Geographic Information System (GIS) system, on which the city spent a great deal of money, is underutilized. The head planner the person who began all the changes left and was replaced by an new planner. The Worcester Redevelopment Authority which had been closed and integrated into the planning unit is now a separate entity again.
The City of Worcester needs to set into place a stable administrative system which will guide projects through the development and implementation stages. While little development was taking place, the city placed all research and development issues in the planners hands . Now that buildings are actually being constructed control over the project has a whole has been distributed to the developing organizations. Thus each project is being built somewhat in isolation rather than being overseen by one department such as the Office of Planning Community Development.
The Office of Planning and Community Development in Worcester has the strong research component but the department also has other strengths which would allow it to follow projects through the development stages. Either the office was not prepared to manage these projects when needed or had not effectively presented its other strengths when a department was put into place to manage these projects. Thus all of the 226 development projects taking place in the city are currently taking place outside of the Planning Office and independently to a great extent. The Worcester Redevelopment Authority has charge of the remodeling of the Old Train Station and is overseeing the Medical City project but even within this office there is little sense that the projects are being coordinated. It also appears that each project is being designed and executed separately. For example, a substantial portion oflnterstate Commercial District was demolished to make room for Medical City, which is currently in design development, the environmental approvals having already been obtained. Perhaps if one department such as the Office of Planning had been managing these larger changes then more incremental phasing could have been integrated into the project allowing for a more gradual change in the landscape of this district.
The lack of coordination between these re-development projects was immediately apparent. Each of the major projects has its own time table which it has been designed to meet but there is no coordinated time showing all phases and time table for the various projects. Such as time table would alert officials to potential conflicts and overlaps. The city then chose to hire an outside consultant to manage and coordinate the many projects, and specifically begin to clarify how these projects would work with one another and with the existing developments in the Main Street Study Area. The consultant assists the city in coordinating the projects addressing questions such as, if there is a concert at the new Centrum, a hospital emergency and a sale at the mall will there be adequate parking?
How will traffic be regulated? The consulting firm, Chan, Krieger & Associates though is an urban design practice and thus deals primarily with design-related issues. It seems that this was an unnecessary expense. The Office of Planning and Community Development would have been better suited to monitor and coordinate these development projects having both design skills and political experience. In addition, the staff in the planning office resides in the Worcester area giving them an additional personal and vested interest in the outcome of these projects. Through this office subgroups such as the Worcester Redevelopment Authority can operate on an as needed basis which would allow adjustments in staffing to be made as needed, depending on the phase a project is in. But by having the planning office as the umbrella organization, the many aspects of design and development can be coordinated, integrated and completed to benefit the City .

Encourage dialogue between the government organizations to prevent any
one group from becoming too isolated and thus out of touch with the needs of the others.
Put the needs of the community before individual and departmental differences. The Office Planning and Community Development has not been adequately involved in the development process in the past. In addition, there have been some internal conflicts between departments which has further discouraged them from working together.

Politics is an important part of the Planning process. The in-fighting
between Planning and Economic Development led to their own demise during what should be banner development projects for their offices specifically. Instead these projects are being undertaken in absentia, by other bodies put in place to take on the immediate demands these developments required.

Commit to the Entire Process. The local administration and specifically the
Planning Department needs to follow the project from the planning, and development stages through the design and post-construction evaluation and inspection phases. This will ensure that changes made in these phases of the project will continue to meet the goals and objectives established by and for the city.

Administrative Departments
Access to Information. There is a lack of specific quantitative information and information sharing between the departments. The city needs to make detailed reports including a Market Analysis, an Area Housing Analysis and Housing Demand Analysis. This information is not readily available. In addition, the Planning office did not have information regarding the certain financial mechanisms used to attract development, the information having to be obtained from the Office of Economic Development . Basic information should be part of the knowledge base of both departments both in terms of answering questions but also for completing work in the departments. The team would review all proposals for new construction, renovation or restoration, evaluating the design proposal itself, quality and types of materials, scale and general impact on the community. They would make recommendations to the City manager and the Planner as to whether the project should be accepted or rejected. The Urban Design Team would also be responsible for developing an Urban Design Plan.

Develop an Urban Design Plan. The Urban Design Team would develop and
urban design plan which would offer basic guidelines for development. it would recommend building materials and appropriate styles for various parts of the city. Such a plan could make recommendations regarding height and bulk requirements, window and door types and styles, percentage of glass at street level and even building materials. The plan would also offer similar design suggestions for things such as trash containers, signage and telephone booths. All physical components in the city should be addressed.
This plan although a guide would assist developers and architects when designing a 229 project and help make the city cohesive visual environment. This document would not be a binding legal document like the zoning code but once approved should be generally accepted as the standard for the city.

Problem:
There exists a lack of coherence in development and execution of projects in the city of Worcester. A number of projects have been proposed and undertaken in Worcester, but all of the project are being executed by different groups and there has been no attempt to relate these projects to one another either in terms of appearance, circulation, or usage by people. Recommendation: The City should better publicize its efforts and solicit participation from the residents. For example, the city could involve the public in its efforts to renovated restore City Hall. Residents could help financially by participating in -phonathons. And because the renovations will impact people's ability to use the building, an extensive advertising campaign could keep residents informed about the changes and progress in this restoration and in other projects in the City. This will make people feel a part of the process and that they have a vested interest in the positive outcome.

Problem:
The city needs to expand expectations when offering density bonuses to developers.
Recommendations: Elaborate expectations when granting incentive zoning to developers. Density bonuses should continue to be offered to developers, but the city should benefit to a greater degree than seen in past development projects. The benefits should cover all areas including public amenities, landscaping and building detailing. In addition development controls should be imposed on the developers. These mandatory controls would require that the developer meet specific conditions in order to increase the FAR on the building. By achieving these mandatory conditions, a developer building in a BG-6.0 district would then be eligible to increase the FAR of the building from what is currently allowed in the zoning code. The conditions required to make this increase should include some of the following suggested controls: 1. All developments must front on at least two streets. Each street 232 should have a minimum width such as 25 feet. This would help to minimize the impact of parking, loading and the required services which would accompany this building. This would also help to accommodate the increase in pedestrian traffic.
2. "A critical mass of contiguous public space must be provided. This 3. Sites which are adjacent to major transit areas such as bus stops and train stations should provide access to these facilities from the new development or building.
4. Buildings which are over a certain square footage could also have additional requirements. For example, building which are over 150,000 SF must provide retail space on the ground level to encourage pedestrian traffic on the surrounding streets. When it is not feasible to have shops, display windows should be provided at the street level. Along Main Street retail and service oriented businesses should be encouraged if not required. Retail kiosks, carts and cafe areas could also be provided as a means of generating activity in and around the building although this may not be mandated.
5. Standards to allow air and light to reach the street should be imposed.
These standards should require that as the building becomes taller its overall mass be reduced in order to allow sunlight to reach the street and prevent severe shadows.
6. Open loading areas should be prohibited. They should be incorporated into the building's structure.
ning dogma by applying "traffic calming" lessons learned in thriving communities like Winter Park to dying downtowns. Racing traffic and the absence of curb-side parking have degraded center-city streets, they argue, chasing away potential customers of street-level stores and restaurants. Narrowing the wide, one-way streets that crisscross most downtowns, and adding on-street parking, they insist, will make urban streetscapes far more appealing to shoppers, diners, and sightseers.

Crawling Cars
Flourishing, traffic-congested neighborhoods like New .York's Greenwich Village, Miami's South Beach, and downtown 1 Santa Fe, N.M., they say, offer proof that city streets need traffic crawling through at 20 mph.
"Anywhere that doesn't have congestion, you probably wouldn 't want to be there," says Toronto urban planner Ken Greenberg; who, as the city's design ·director in the 1980s, halted the construction of freeways and narrowed numerous .streets. In successful downtowns, he says, cars should move "at the speed of a -horse and buggy." For a generation of engineers to whom the free flow of traffic has been high religion, such notions border on sacrilege. ·Government transportation officials, who control road-building funds, often insist that planners conform to standards intended to maximize traffic flow.
"I don't think you bring more life to [center cities] by increasing the congestion and accident hazards," says Paul Box, a prominent traffic engineer who helped write current national road guidelines. Narrowing city streets ·is "stupid," he says, and on-street parking in downtowns will only increase accidents.

New Urbanists
The abandonment of many city centers by all but the people who work there, Mr. Box contends, is an irreversible product of suburbanization, and no amount of street alterations will change that. "What we need, typically, are wider streets." This debate between traffic engineering's old and new guard could alter the way America's cities handle their traffic. Maverick engineers like Mr. Kulash have been embraced by an influential group of planners called the New Urbanists, who see the traditional town center as a model for modern development. They have gained the ears of a handful of mayors who are grasping for new ways to reverse the generation-long flight of retail, residential living, and office jobs from the cities to the suburbs.
The reasons people have left many cities, of course, include a host of economic and social factors, and no one contends that changing traffic patterns a1o· ne can reverse that trend. But making city streets an attractive place to slow down, some argue, is a necessary component of revitalization. ' · · 242 Roads, Not Ramps The "pro-highway mentality" of sta1 traffic planners ·meant city streets "ju: served as external ramps off the freeway, Milwaukee Mayor John Norquist say: Now, "our local city engineers are startin to understand that their job is to add valu to the streets." Milwaukee has added parking to dowi town streets, restored two-way traffi to some, and has studied tearing dow deteriorating freeway spurs and replacin them with boulevards. Other traffic-calrr ing projects are being considered or ar under way in numerous cities, includin St. Paul, Minn., Portland, Maine, Prov dence, R.I., West Palm Beach, Fla., an Birmingham, Mich.
Even the federal Department of Tram portation is reconsidering accepted nc tions about road design . "Transportatio1 Please Tum to Page A6, Column 1

APPENDIXB Wall Street Journal Article (cont'd)
Continued From First Page should serve community needs," says John Horsley, the department's deputy assistant secretary . for governmental affairs. "Too often we've delegated [road deslgn) to professionals who thought their only goal was to move regional traffic." As he wheels around the Orlando area at a pace that leaves impatient drivers climbing up his tailpipe, Mr. Kulash concedes that traffic calming inevitably riles commuters~ "A lot of people are furious about tampering with their ability to drive fast," he says. "But they aren't politically organized. And it would look really bad [lo complain]. They aren't about to • show up at a [public planning] meeting."

A Drive-By
The 54-year-old Mr. Kulash has a theory about why people drive fast, which he says he arrived at through roadside interviews: The more attractive and engaging the road, the slower a person will drive. As Mr. Kulash accelerates onto a four-lane, sun-blasted commercial strip outside Winter Park, he points out what he sees as design flaws: no trees or roadside landscaping, vast roadside parking lots with wide mouths, and a string of unattractive buildings set back far from the road. "There should be fabulous value here. But the frontage has been poisoned" by the design, he says. "It's such a bleak, unrewarding scene that drivers deserve to get by it as fast as possible." Traffic is indeed flying.
Mr. Kulash insists he isn 't anlicar, just in favor of a better balance between cars and pedestrians. He is adamantly opposed, for example, lo closing streets to traffic. All but a few of the pedestrian malls installed in many cities .during the 1970s have been a complete bust, he notes, because shoppers don't like to walk far from their cars. Many of those malls are now being torn out.

Rethinking Suburbia
For two decades; Mr. Kulash toiled · in obscurity as a traditional traffic engineer, helping clients like the stale of Arizona lay down highways. In 1991, a partner al Glutting Jackson Kercher Anglin Lopez Rlne!iart, the planning · firm where he works in Orlando, introduced him to the New Urbanisl theories. Intrigued, Mr. Kulash set out to analyze whether the grids of narrow neighborhood streets would outperform the wide, high-speed, suburban arteries which carry traffic between a series of cul-de-sacs.
He claims his computer analysis demonstrated that the grid of narrower streets allowed for shorter travel limes and fewer delays. Although those conclusions are hotly disputed by some, a paper Mr. Kulash prepared on the topic attracted the attention of many urban planners, bringing his firm plenty of business.
Mr. Kulash is working with engineers in St. Paul, Minn., to transform Wabasha Street, ·a down-on-its-luck commercial drag into a pedestrian-friendly central street. Last month, the city took the first step, eliminating a lane of traffic and adding parking.
St. Paul Mayor Norm Coleman points an unlit cigar to a vintage print on his office wall showing an architect's design of , the city, in which a central boulevard linked the stale capital lo the banks of the Mississippi River. But when a freeway was built,, it dl"v"ided the capital area from the city center. "In the 1960s, the traffic engineers thought they had it all figured out. And they did, because moving traffic was their goal." But their success, he insists, "is inextricably tied to urban decline." · · SomeSayCities~eedMoreTraffi~ 243 Empty Evenings St. Paul, a city of 272,000 has become a quintessential nine-to-five cominuter town . The 50,000 people who work downtown "come into work, they stay in the buildings for lunch, and they go home," says Department of Public Work Director Stacy Becker. Most evenings, the downtown is practically d~serted by 5:30 p.m. Like many cities, St. Paul converted a number of downtown streets to one-way in the 1950s, so they could handle more traffic. In the 1960s, a ring of highways was added around the center city. Then, in an effort to separate pedestrians from traffic 1 and the harsh winter weather, the city built a system of enclosed, elevated walkways that now link 50 blocks : On a recent midmorning walk along Wabasha Street, Ms. Becker gestures to the featureless office-building facades and side streets without storefronts: "Why would you want to walk down here'!" she asks. Rather than encouraging visitors to stop, Wabasha "is a great street to get out of town." Indeed, cars zip along the street at an average of 28 mph -lightning fast, by urban standards. It is so efficient that 15 minutes after work lets out, rush hour is over.
But changing:t11e street's configuration wasn't easy. Stale regulations set minimum widths for urban streets, and cities that didn't comply faced the loss of gasoline-tax revenues. Eventually, the state granted variances allowing the removal of one lane of Wabasha, the addition of on-street parking and a bike lane. The city is planning to line the street with trees, and is considering the restoration of two-way traffic.
City planners hope that physical changes to storefronts, coupled with coordinated marketing, will entice workers to spend more lime downtown, and attract visitors from lhe suburbs.
Still, skepti\'isrn about the plan abounds. "Everyone has a silver bullet," says John S. Adams, n professor of planning and public affairs at the University of Minnesota. "Most of the planners don't understand the economics of" the decline of the center city, which he attributes lo tax am! public-policy incentives favoring the suburbs. "I really don't think that traffic patterns make much or a difference." The merchants on Wabasha, who have seen redevelopment plans come and go, remain wary. But they are enthusiastic, at least, about the added parking. Denise Roseland, manager of a downtown bagel shop, says she has heard "a lot of comments from customers saying, 'It's so much easier to get to you now. I can just pull up out front and run in."' "Traffic really slowed down. I was shocked," says a pleased Alan Bloom, the director of leasing for the downtown mall. "I didn't think we'd see this much of a difference.'' As for the commuters, "I'm not sure fancy lights and pretty trees are going tc satisfy people that are slowed down, " concedes Michael Klassen, a city engineer. "It's going to take some getting used to ."