CHAPTER FOUR :

Management Options

Management Option 1.

John H. Chafee Blackstone River Valley 

National Heritage Corridor 

Continues to Operate Under Current Authorities . . . . . 73

Management Option 2.

Old Slater Mill National Historic Site . . . . . . . . . . . . . . . . . . . . . 77

Management Option 3.

Blackstone River Valley 

Industrial Heritage National Historic Park . . . . . . . . . . . . . . . 79

Alternatives Considered but Dismissed . . . . . . . . . . . . . . . . . . 83

Environmentally Preferred Alternative . . . . . . . . . . . . . . . . . . . 84
CHAPTER FOUR : MANAGEMENT OPTIONS | 73

being undertaken independent of, but in coordination with, 

the Special Resource Study.

Visitor Experience

As with many heritage corridors, it is up to the visitors to craft their own experience, making use of the informational materials made available by the management 

entity and its partners. The Commission, as a federal body, 

has previously been staffed by the National Park Service, 

whose uniformed NPS interpretive ranger staff has been a 

constant presence in the Valley.

Many visitors begin their experience at one of the four 

existing facilities located throughout the Blackstone River 

Valley:

• The Blackstone Valley Visitor Center, Pawtucket, RI

• Kelly House, Blackstone River State Park, Lincoln, 

RI

• The Museum of Work and Culture, Woonsocket, RI

• River Bend Farm/ Blackstone River and Canal 

Heritage State Park, Uxbridge, MA

Each of these facilities is operated by a Corridor partner 

and provides exhibits focusing on a different facet of the 

Blackstone River Valley’s history. Each facility has rack 

cards and brochures highlighting other destinations in the 

Valley including a series of guides for walking tour prepared by Commission staff and its partners for many of 

the Blackstone River Valley’s industrial villages. The NPS 

interpretive rangers and volunteers offer guided walks, lectures, school programs, and provide staff support to key 

partners (e.g., Old Slater Mill).

The Commission staff also spearheads numerous regional events and initiatives that attract many participants 

and user groups. These include the Greenway Challenge (a 

hike, bike, and paddle event across the entire Blackstone 

River Valley), Footsteps in History (an initiative that coordinates the development and promotion of history-based 

programming), and continued development of the Blackstone River Bikeway. The Commission also worked with its 

own network of partners and with state and local agencies 

to develop a uniform, regional signage system that would 

make visitors aware of the Corridor and the resources associated with it.

After the expiration of the Commission, the presence 

of NPS interpretive rangers will end. Programs previously 

offered by the NPS rangers could be undertaken by the 

new management entity or by its many partners as staffThe study team has identifi ed a range of management 

options describing different ways that the resources identifi ed in the Blackstone River Valley could be protected and 

interpreted for the benefi t of the public. Management Option 1 (the “status quo” alternative) is organized somewhat 

differently from Management Options 2 and 3 to better describe the present condition as well as the possible conditions after the Commission expires in October 2011.

Management Option 1.

John H. Chafee Blackstone River 

Valley National Heritage Corridor 

Continues to Operate Under 

Current Authorities

Concept

Under this management option, no new unit of the National Park System would be proposed. The John H. Chafee 

Blackstone River Valley National Heritage Corridor (“Corridor”) would continue to be recognized as a federally 

designated national heritage corridor. In compliance with 

Public Law 109-338, the John H. Chafee Blackstone River 

Valley National Heritage Corridor Reauthorization Act of 

2006, the Corridor Commission (“Commission”) would 

continue to operate under its present authorities and receive operating funds from the National Park Service until 

October 2011. The Corridor is authorized to receive development funds through 2016. In the absence of the Commission, there would be no dedicated federal operational 

funding and no federal staff to operate the Corridor.

Commission staff would continue to provide planning 

support and technical assistance to state and local partners, 

and uniformed National Park Service rangers would continue to be available for visitor programming and public 

outreach as long as the Commission remains in operation. 

In the absence of the Commission, a cadre of volunteers 

and docents in combination with the staff of key institutions like the state parks, the Museum of Work and Culture, and Old Slater Mill would continue to offer the same 

visitor programs and exhibits they do now. Existing visitor 

facilities would be maintained and made available to the 

public by their respective owner/operators.

The Commission is currently in the process of developing a strategic plan to address the transition from a commission to a non-federal operating body. This process is 
74 | BLACKSTONE RIVER VALLEY SPECIAL RESOURCE STUDY

ing permits. While the use of static media (e.g. exhibits, 

brochures, etc.) would continue and could be updated as 

needed; personal services (e.g. guided walks, lectures, etc.) 

would likely become less available to visitors.

Museums and visitor facilities would continue to operate within and collaborate with the Corridor, remaining 

available to the visiting public. The new management entity 

of the Corridor would continue to coordinate and promote 

regional programs and initiatives, working with state and 

local agencies and a network of partners to maintain the 

regional signage system throughout the Valley.

Management Entity

The activities and initiatives of the Corridor would continue to be provided by the bi-state, federally appointed 

25-member Commission until its authorization expires in 

October 2011 as directed by P.L. 109-338. The Commission was established by Congress in 1986 to work with the 

states, the municipalities, and other partners in developing 

cultural, historical, and land resource management plans 

that would retain, enhance, and interpret the Corridor’s resource values.

The Commission would also continue to develop, revise, and implement a Corridor-wide management plan 

in partnership with the two states, Corridor communities, 

and other members of the partner network; and to account 

for the use of federal funds appropriated to achieve Corridor goals. The Commission would continue to consult 

and coordinate with other federal agencies’ project review 

and compliance procedures to assure that such projects are 

carried out, to the maximum extent feasible, in a manner 

consistent with congressional purposes of the Corridor. 

The Commission would also continue to provide planning 

support and fi nancial and technical assistance to state and 

local partners.

Until October 2011, the National Park Service would 

continue to provide staff to the Commission to support a 

variety of functions including interpretive services, planning and project support, and technical assistance. The 

Commission would continue to make matching funds available to support selected projects throughout the Blackstone 

River Valley. P.L. 109-338 also authorizes development 

funds for the Corridor through 2016.

After October 2011, the Commission would cease operation, and the Corridor would be managed by a non-profi t 

organization, the recently incorporated Blackstone River 

Valley National Heritage Corridor, Incorporated (“Blackstone Corridor, Inc.”). Similar to the existing Commission, the new management entity would be locally based 

and broadly representative of interests throughout the Valley and would play a similar role in the Corridor. The new 

management entity would be eligible for potential funding 

support under existing authorities of the National Park Service, but would largely be responsible for raising its own 

operating budget. In the absence of the Commission, National Park Service staff would no longer be available to 

the Corridor.

National Park Service/ Federal Role

Prior to the Commission’s expiration in 2011, the National Park Service would continue to provide operational 

funding and staff support to support its current role and 

function in the Blackstone River Valley. Uniformed NPS 

rangers would continue to be available for visitor programming and public outreach.

Partnerships

Functionally, the Corridor is a regional partnership 

among the Commission and all levels of government, other 

organizations, and individuals who support and seek to 

advance the vision and goals of the Corridor. Each state 

has multiple agencies represented on the Commission, and 

the governors of each state are authorized to appoint Commission members from each of their states. State agencies 

have fi scal and management responsibilities for a number 

of initiatives that relate to and support the Corridor’s vision 

and goals (e.g., development of the Blackstone River Bikeway and preservation planning for the Blackstone Canal). 

State agencies also provide funding and staff assistance for 

collaborative projects within the Corridor. In addition, the 

Corridor’s cities and towns have some representation on the 

Commission and, like the state, they assume responsibility 

for many initiatives supportive of the Corridor’s vision and 

goals (e.g., protecting historic resources).55 While organizations and individuals do not have dedicated seats on the 

Commission, they too are central to the Corridor’s network 

of partners. The Corridor’s non-governmental partners are 

involved in numerous management and collaborative project activities (e.g., Old Slater Mill, the Museum of Work 

& Culture, and the Campaign for a Swimmable & Fishable 

Blackstone by 2015).

55 Not all cities and towns within the Blackstone River Valley are represented on 

the Commission at any given time. The composition of the Commission changes as 

terms expire and new appointments are made.
CHAPTER FOUR : MANAGEMENT OPTIONS | 75

Though this network of partners does not necessarily 

dissolve after the Commission expires in October 2011, the 

overall construct could change. Old Slater Mill, the state 

parks, the Museum of Work and Culture, and other organizations would continue to provide visitor and educational 

programs and support resource protection initiatives. The 

newly formed non-profi t Blackstone Corridor, Inc. could 

continue to work with the Blackstone Valley Tourism 

Council, the Blackstone Valley Chamber of Commerce, 

and others to promote heritage tourism and engage in joint 

fundraising. Additionally, Blackstone Corridor, Inc. could 

coordinate fundraising efforts, as well as regular programs 

and special events among existing organizations and institutions.

Resource Protection

Until October 2011, the Commission would continue to 

champion resource protection through its educational and 

interpretive programs; fi nancial and technical support for 

resource protection initiatives undertaken by state and local 

agencies, as well as private organizations and institutions; 

and coordination of multi-party efforts to seek funding 

and support for resource protection efforts throughout the 

Blackstone River Valley. The Commission would continue 

to consult and coordinate with other federal agencies’ project review and compliance to assure that such projects are 

carried out, to the maximum extent feasible, in a manner 

consistent with congressional purposes of the Corridor.

The new management entity, Blackstone Corridor, Inc., 

would continue to promote and advocate for resource protection and for the support of local organizations and institutions whose missions support the purposes of the Corridor. The management entity’s role and function could 

extend to providing technical assistance and planning support if it can muster a suffi cient level of professional staffing and funding.

Interpretive and Educational Programming

The Commission would continue to employ uniformed 

NPS park rangers to perform a variety of visitor service and 

educational functions until October 2011. These include 

developing and executing a comprehensive interpretive 

plan; developing of exhibits and other interpretive media; 

conducting walking tours; providing operational support to 

Corridor visitor centers; supporting special programs and 

events in the Blackstone Valley; and giving interpretive 

talks at numerous venues throughout the Valley.

Until October 2011, the Commission staff would provide 

continued support to develop and maintain visitor facilities 

at key locations throughout the Valley and would support 

the development of interpretive media and visitor programming at each site. A system of interpretive waysides and 

signage has also been developed and deployed throughout 

the Blackstone River Valley with the continued assistance 

of the Commission. Visitor centers operate at Pawtucket, 

Woonsocket, and River Bend Farm in Uxbridge.

After the Commission expires, NPS staff will no longer 

be available to the Corridor. The new management entity, 

Blackstone Corridor, Inc., would continue to work collaboratively with local agencies and institutions to coordinate 

the development and delivery of visitor services.

The Commission would continue to support updating 

and replacing interpretive signage, exhibits, and walkingtour brochures. After the Commission ceases operation in 

October 2011, this function would have to be undertaken 

by each community and its institutional partners, working 

in concert with the new management entity.

Recreational Opportunities

Until the Commission expires, its staff would continue 

to be actively engaged in long-term efforts to develop a 

Blackstone River Bikeway. They would continue to work 

with state agencies to develop and install interpretive signage along the trail.

After the Commission ceases operation in October 

2011, the new management entity, Blackstone Corridor, 

Inc., could become an advocate for the continued development of the Blackstone River Bikeway and for the continued clean-up of the Blackstone River.

Finance

Until October 2011, the Commission would continue to 

receive operating funds from the National Park Service’s 

operating budget and through the Heritage Partnership Program. Per its authorizing legislation, the federal contribution to the Commission could not exceed 50 percent of its 

annual operating costs.

The Commission was authorized to provide funds for 

the following purposes: preservation and restoration of 

properties on or eligible for inclusion on the National Register of Historic Places; design and development of interpretive exhibits to encourage public understanding of the 

resources of the Blackstone River Valley; and cultural or 

environmental educational programs related to environ76 | BLACKSTONE RIVER VALLEY SPECIAL RESOURCE STUDY

mental awareness or historic preservation. Funds made 

available for these purposes are subject to a 50:50 matching requirement.

After the Commission ceases operation, some Corridorrelated projects may be eligible for technical and fi nancial 

assistance through existing competitive funding and grants 

offered by state and federal programs, including those programs within existing NPS authorities (e.g. RTCA). The 

new management entity would have to raise funds to support its operations and initiatives.

Legislative Requirements

In anticipation of the October 2011expiration of the 

Commission, legislation amending the Corridor’s enabling 

act would be required to authorize the new management 

entity.

Cost Estimates

Note: This refl ects the Commission’s budget through the 

end of Fiscal Year 2011.

Annual Costs

 Operations (salaries and other operational costs)

 $ 923,000

 Technical Assistance/ cooperative agreements

 $744,000

One-Time Costs

 Research

 $0

 Planning (Update Corridor Management Plan)

 $20,000

 Construction

 $0
CHAPTER FOUR : MANAGEMENT OPTIONS | 77

Management Option 2:

Old Slater Mill National Historic 

Site

Concept

This management option proposes that the Old Slater 

Mill National Historic Landmark District be considered 

as a potential unit of the National Park System that would 

be jointly operated, preserved, and maintained by the Old 

Slater Mill Association (OSMA) and the National Park 

Service. The site would continue to be owned by OSMA, 

though the National Park Service would acquire a preservation easement on the property to ensure its preservation for 

future generations. The National Park Service would enter 

into a cooperative agreement with OSMA that would defi ne the roles and responsibilities of each party in the operation and management of the site. The proposed boundary 

would coincide with the boundary of the National Historic 

Landmark District as depicted in Figure 2 in Chapter Two: 

Historical Overview and Resource Description.

In order to convey the full infl uence of Old Slater Mill 

on the early development of the American textile industry, 

NPS would be authorized to enter into cooperative agreements with private and public entities to engage in the interpretation of Old Slater Mill National Historic Landmark 

District and the Rhode Island System of manufacture as it 

existed in the Blackstone River Valley.

Visitor Experience

Repeat visitors to Old Slater Mill Historic Site and Museum would be unlikely to notice any substantial changes 

to the overall sense of place or the nature and quality of 

the programs offered to the public. However, some aspects 

of the experience may be reshaped in some tangible ways. 

Under this alternative, the present Blackstone Valley Visitor Center in Pawtucket could be expanded and retooled to 

serve as administrative, orientation, exhibit, and education 

space specifi cally serving the national historic site. Visitors 

could arrive at the Visitor Center, learn about Old Slater 

Mill and the industrial heritage of the Blackstone River 

Valley, purchase admission tickets, register for programs 

offered by NPS or its partners, and peruse the bookstore. 

They would also be offered a printed guide or downloadable program that would assist them in touring the many 

related industrial heritage locations that dot the Blackstone 

River Valley. Computer kiosks could be developed for the 

visitor center that would enable visitors to customize a tour 

of the valley based on their interests and time constraints.

At the Visitor Center, visitors would be greeted by NPS 

staff and/or by docents from Old Slater Mill. After receiving an orientation, they would venture across Roosevelt Avenue to participate in regularly scheduled tours and demonstrations at the Old Slater Mill, Wilkinson Mill, and the 

Sylvanus Brown House. Tours may be offered by NPS and 

museum staff or volunteers. Community events and other 

outdoor activities that have traditionally taken place on the 

grounds would continue. Programs and activities currently 

offered by the museum, such as those associated with the 

current Fiber Arts program, would also continue.

A fundamental interpretive message for Old Slater Mill 

acknowledges it as the launch point for a well-defi ned 

pathway to American industrialization – the Rhode Island 

System of manufacture – that is evident throughout the 

Blackstone River Valley and beyond. Visitors would be encouraged to venture out into the Valley to learn more about 

this important American story.

National Park Service/ Federal Role

NPS Ownership

The Old Slater Mill Historic Site and Museum would 

continue to be owned by the OSMA. The National Park 

Service would also seek the conveyance of a protective 

easement on the buildings and property within the NHL 

district to ensure that it is preserved for the benefi t of future 

generations of Americans. NPS would seek to acquire or 

lease the Blackstone Valley Visitor Center for redevelopment and use for visitor orientation, education, and administrative purposes.

Resource Protection

The National Park Service would have the authority to 

enter into cooperative agreements with OSMA to jointly 

operate, interpret, preserve, and maintain the Old Slater 

Mill, Wilkinson Mill, Sylvanus Brown House, and other 

character-defi ning features on the property and to assist 

in educational programs, research, and interpretation of 

the Old Slater Mill and related industrial heritage sites 

throughout the Blackstone River Valley.

NPS would work with OSMA to prepare a general management plan for the property and would provide assistance 

to Old Slater Mill in support of planning, resource protection, interpretive and educational programming, and operations.
78 | BLACKSTONE RIVER VALLEY SPECIAL RESOURCE STUDY

Interpretation and Visitor Services

NPS could also work cooperatively with OSMA and the 

City of Pawtucket to update, expand, and staff the existing visitor center located directly across the street from the 

historic site through donation of the property to, or under a 

lease with, the National Park Service. Orientation exhibits 

could continue to include information about related sites 

throughout the Blackstone River Valley, but would also include more orientation material for Old Slater Mill. The 

visitor facility could be expanded inside the building to 

allow for the introduction of fl exible program space that 

could accommodate school groups and other visitor needs 

as well as for additional administrative offi ces.

In order to convey the full infl uence of Old Slater Mill 

on the early development of the American textile industry, 

the National Park Service would be authorized to enter into 

cooperative agreements with the states of Massachusetts 

and Rhode Island and other relevant agencies and organizations to provide assistance related to the interpretation 

of the Old Slater Mill National Historic Landmark District 

and the Rhode Island System of Manufacture as it existed 

in the Blackstone River Valley. NPS would also provide 

assistance to agencies and organizations engaged in the 

protection and interpretation of the Blackstone River and 

its tributaries, Blackstone Canal, and the larger rural landscape as well as those working on the development of recreational trails that link industrial heritage resources.

Role of Partners/ Blackstone River Valley 

National Heritage Corridor, Inc.

Resource Protection

OSMA would continue to own and operate the museum 

and be the lead organization responsible for the long-term 

protection of its structures, landscape features, archeological resources, and collections. As a unit of the National 

Park System, the historic site would be required to comply 

with NPS policies and standards. Through its cooperative 

agreement with the National Park Service, OSMA would 

have access to the operational support and technical assistance in the provision of visitor services, development 

of interpretive media and exhibits, and preservation of the 

site’s resources.

Interpretation and Visitor Services

The Corridor would continue to exist independent of 

this NPS unit. The park could work in partnership with the 

Corridor or any one or more organizations engaged in the 

preservation/ interpretation of industrial heritage resources 

and their context. While the park’s interpretive focus would 

be the region’s industrial heritage, the Corridor would take 

the lead in interpreting other facets of the Blackstone River 

Valley’s history and development.

Finance

If authorized, funding for this proposed new unit of the 

National Park Service would be available through the operating budget of the National Park Service. Federal assistance funds would require a match.

Legislative Requirements

Legislation authorizing the establishment of a new unit 

of the National Park System would be required.

Cost Estimates

Annual Costs

 Operations (salaries and other operational costs)

 $1,100,000

One-Time Costs

 Research (HRS, CLRs, HSRs, NRHP docs)

 $250,000

 Planning (GMP/Preservation Plans)

 $450,000

 Construction/Rehabilitation (Create/Outfi t fl exible 

program space and offi ces at Blackstone Valley 

Visitor Center; preservation assistance to OSMA)

 $2,000,000

 Upgrade Exhibits at gateway visitor centers

 $250,000

Research could include the completion of a Historic 

Resource Study (HRS), Cultural Landscape Report (CLR), 

Historic Structures Report (HSR), and updated National 

Register documentation. Planning would include the development of a general management plan (GMP) and a preservation plan. Remaining one-time costs would address 

upgrading existing exhibits and creating fl exible program 

and offi ce space at the Blackstone Valley Visitor Center.
CHAPTER FOUR : MANAGEMENT OPTIONS | 79

Management Option 3.

Blackstone River Valley Industrial 

Heritage National Historical Park

Concept

This management option envisions that a new unit of 

the National Park System would be created by an act of 

Congress. The new unit would include specifi c nationally 

signifi cant sites and districts located within the Blackstone 

River Valley that possess high resource integrity and effectively convey the industrial heritage themes of the Valley. 

The park would engage in visitor programs and resource 

protection primarily for the sites and districts that would be 

named in potential legislation establishing the park including:

• Old Slater Mill National Historic Landmark District, 

Pawtucket, RI

• Slatersville Historic District, North Smithfi eld, RI

• Ashton Historic District, Cumberland, RI

• Whitinsville Historic District, Northbridge, MA

• Hopedale Village Historic District, Hopedale, MA

• Blackstone River and its tributaries

• Blackstone Canal

The non-contiguous historic districts named above 

and as depicted on maps found in Chapter Two: Historical Overview and Resource Description would form the 

boundary of the proposed park unit.

These areas of national signifi cance and NPS interest 

are where potential acquisition could occur in full or partial-fee. Properties in which NPS acquires a partial interest 

(e.g., a preservation easement) could also be cooperatively 

managed if appropriate. The following properties are possible candidates for full or partial-fee acquisition by NPS:

• Old Slater Mill National Historic Landmark District, 

Pawtucket, RI

• Blackstone River State Park, Kelly House/ Old 

Ashton segment, Lincoln, RI (adjoins Ashton 

Village Historic District in Cumberland, RI)

• Centennial Memorial Park, Slatersville, North 

Smithfi eld, RI

• The Parklands, Hopedale, MA

• Castle Hill Farm, Whitinsville, Northbridge, MA

The NPS may also seek to acquire and develop other locations in the village historic districts for interpretive purposes (e.g., a residence could be acquired and developed 

to interpret a mill worker’s daily life). The NPS may also 

acquire properties along the Blackstone River and Canal 

that are historically signifi cant or that provide for continuous linkage, supporting public access, and resource protection. A General Management Plan would be developed for 

the park that identifi es priorities for acquisition (full fee or 

partial fee), and protection and public use of the resources. 

Any NPS acquisition would occur on a willing-seller basis, 

and properties currently in public ownership could be acquired only by donation.

In addition to land acquisition authority, within the 

park’s authorized boundaries NPS would have the authority to enter into cooperative agreements to provide assistance for resource protection and interpretation. The park 

would also be authorized to provide interpretive assistance 

to thematically-related resources located throughout the 

Corridor.

The National Historical Park would be operated by the 

National Park Service in cooperation with a regional partner that could be specifi cally identifi ed in the park’s enabling legislation and with other local management partners, as appropriate. The NPS would be authorized to enter 

into a cooperative agreement with the regional partner to 

undertake activities that support the purposes of the park. 

The regional partner would assume a lead role in preserving, protecting, and interpreting related industrial heritage 

resources throughout the Corridor that fall outside of the 

park’s boundary, as well as the region’s larger rural and 

agricultural landscape. The regional partner is likely to be 

Blackstone River Valley National Heritage Corridor, Inc. 

(“Blackstone Corridor, Inc.), a newly formed 501(c)3 nonprofi t organization that will assume responsibility for the 

Corridor after the Commission expires in October 2011.

Visitor Experience

The visitor experience could begin at any one of the 

four pre-existing gateway facilities at key locations in the 

Blackstone River Valley:

• The Blackstone Valley Visitor Center, Pawtucket, RI

• Captain Wilbur Kelly House, Blackstone River State 

Park, Lincoln, RI

• The Museum of Work and Culture, Woonsocket, RI

• River Bend Farm/ Blackstone River and Canal 

Heritage State Park, Uxbridge, MA

A fi fth gateway facility is planned and presently under 

development in Worcester, MA.
80 | BLACKSTONE RIVER VALLEY SPECIAL RESOURCE STUDY

Each gateway facility would offer a uniform orientation 

exhibit introducing visitors to the park’s sites and districts 

as well as the larger context of the Blackstone River Valley. 

Visitors would also be made aware of the Blackstone River 

Bikeway, river access along the Blackstone River and its 

tributaries, local trails, and other opportunities to view and 

experience the region’s industrial heritage resources.

Visitors would be greeted by NPS or museum staff or 

volunteers and would be able to view an exhibit orienting 

them to the industrial heritage of the entire Blackstone Valley and introducing them to the major components of the 

park. They would also be able to obtain park brochures and 

other publications.

While visitors would be made aware of the historical 

sequence of events in the Blackstone River Valley’s development and infl uence, they would be able to develop their 

own itinerary for their visit. For example, computer terminals could be available at each visitor facility, allowing 

visitors to plan their trip based on individual interests, time 

constraints, etc.

At the park’s sites and districts, visitors could participate in guided or self-guided walking tours enhanced by 

interpretive waysides and/or an audio presentation and, 

at some locations, view indoor interpretive exhibits highlighting some facet of the Blackstone Valley’s industrial 

heritage. Uniformed park rangers and volunteers would 

be present and would offer regularly scheduled park programs. The development of interpretive media such as directional signage, interpretive waysides, published guides 

and brochures, and audio tours would be supported by NPS 

and could be undertaken in partnership with others.

National Park Service/ Federal Role

NPS Ownership

NPS ownership would be limited to those structures or 

sites within the boundary of the park that are appropriate 

and necessary for preservation, rehabilitation, and interpretation as they relate to the purposes of the park. For 

instance, NPS might consider the direct acquisition of a 

residential property to develop an interpretive exhibit on 

mill housing. NPS may also acquire properties along the 

Blackstone River and Canal that are historically signifi cant 

or that provide for continuous linkage, supporting public 

access and resource protection.

NPS would also seek the conveyance of preservation 

easements on key historic properties and open spaces within the park boundary, such as the Old Slater Mill National 

Historic Landmark District, on a willing-seller basis or by 

donation.

Other acquisition could be undertaken in full or partial 

fee and would likewise be on a willing seller basis. The 

development of NPS facilities in the Corridor could also 

be accomplished through long-term lease or cooperative 

agreements with existing owners and managers. These 

facilities could include the gateway visitor facilities and 

administrative offi ce space for park headquarters in Woonsocket, Rhode Island.

Resource Protection

Because much of the property within the boundary of 

the park would remain in private hands, the park and its 

regional partner would work in partnership with the local 

community and property owners to ensure the long-term 

protection of these resources. At a minimum, NPS would 

provide assistance to support the creation of local historic 

districts that would be overseen by the local historical commissions. The park, its regional partner, and the affected 

communities would work together to develop a preservation plan for each site or district within the park boundary. 

Eligibility for further assistance would require consistency 

and compliance with the approved General Management 

Plan and the relevant preservation plan. NPS would have 

the authority to enter into cooperative agreements with 

state and local governments and agencies as well as private 

interests for resource protection and interpretation.

The potential National Historical Park and its regional 

partner would collaborate in the development of a General 

Management Plan (GMP) for the park that would also result in a strategic plan guiding the related work of the regional partner. The park would work collaboratively with 

its regional partner to support and enhance existing visitor 

facilities and certain recreational amenities that have been 

developed over time as gateways to and pathways through 

the Blackstone Valley. The park and its regional partner 

would also take steps to encourage the long-term protection 

of related resources that are outside of the park’s boundary 

or authorities, such as the Blackstone Valley’s larger rural 

landscape, the Blackstone River and Canal, and the many 

remnant industrial heritage resources located throughout 

the area. The GMP would identify priorities for land acquisition and would provide long-term policy guidance for 

park operations and development.
CHAPTER FOUR : MANAGEMENT OPTIONS | 81

Interpretation & Visitor Services

The NPS would play a substantial role in the development and delivery of interpretive and educational programs, including an NPS ranger presence in the park’s sites 

and districts. NPS would work with local private and public 

partners to enhance interpretive media and visitor facilities.

Under this management option, the park would take 

advantage of the existing visitor facilities and amenities 

throughout the Blackstone Valley. The visitor facilities at 

Pawtucket, Woonsocket, and Lincoln, Rhode Island, and 

at Uxbridge in Massachusetts would all function as orientation centers. A uniform exhibit orienting visitors to the 

Blackstone Valley’s overall context and the park’s sites and 

districts would be developed and installed at each venue. 

NPS staff and volunteers may provide limited visitor services support at these locations.

At sites or in districts where little visitor infrastructure 

exists, the park would work collaboratively with the local 

community to introduce signage, interpretive exhibits, brochures, and other visitor amenities to ensure a positive and 

interesting visitor experience. The National Park Service 

may directly acquire one or more appropriate properties to 

be developed for interpretive, visitor services, and/ or administrative purposes.

The park and its regional partner would work with state 

and local agencies to support the development of the Blackstone River Bikeway and other alternative transportation 

opportunities that link the park’s sites and districts and ties 

them into the greater Blackstone Valley. The park would 

work with state and local agencies to encourage the use of 

interpretive media (e.g., signage; podcasts, etc.) on recreational routes through the Corridor. The park would also 

support continuing local efforts to improve water quality 

in the Blackstone River and Canal and to encourage their 

recreational use.

Role of the Regional Partner and the 

Blackstone River Valley National Heritage 

Area

The National Park Service would enter into a cooperative agreement with the regional partner to enable their collaboration to advance the purposes of the park.

Resource Protection

The regional partner would assume a leadership role 

along with the National Park Service in working with local 

communities and other key partners to develop the General 

Management Plan for the park and preservation plans for 

the park’s sites and districts. One of the principal roles of 

the regional partner in this context would be to serve as a 

convener and a bridge to enhance communication among 

the park, community residents, local and state agencies, 

and other key stakeholders.

The regional partner would take the lead in pursuing 

the long-term protection of the Blackstone River Valley’s 

larger rural landscape, the Blackstone River and Canal, 

and remnant industrial heritage resources and would work 

collaboratively with NPS to complete the inventories and 

evaluations necessary to identify priorities for protecting 

the valley’s larger rural landscape and remnant industrial 

heritage resources. The regional partner would also provide assistance to related industrial heritage resources in 

the Blackstone Valley. NPS would work with its regional 

partner to create a strategic plan identifying priorities, 

strategies, and actions necessary to protect these resources.

NPS and its regional partner would support continuing 

local efforts to improve the water quality in the Blackstone 

River and Canal and work with state and local agencies to 

ensure that the historic industrial infrastructure located in 

and along the river (e.g., locks, gates, and dams) and their 

historic values are considered in any proposals for change 

and development along the river corridor.

In its capacity as the management entity for the Corridor, the regional partner would continue to advocate for 

the identifi cation, protection, and interpretation of resources that represent the many other facets of the Blackstone 

River Valley’s heritage (e.g., Native American culture and 

history, early settlement, transportation, etc.).

Interpretation & Visitor Services

The regional partner would take a leadership role in offering visitor programming in other areas of the Blackstone 

Valley possessing resources that support park themes or are 

otherwise relevant to the park’s purposes (e.g., collaboration on special events, guided walking tours, development 

of visitor guides, etc.). Working within state curriculum 

guidelines and in collaboration with local school districts, 

the regional partner and NPS would build on existing efforts to conduct educational outreach and provide programming to local schools.

The regional partner, in its capacity as the management 

entity for the Corridor, would also continue to work with 
82 | BLACKSTONE RIVER VALLEY SPECIAL RESOURCE STUDY

a wide range of interests in the Blackstone River Valley to 

interpret its rich and complex history.

Finance

Funding for this potential new unit of the National Park 

System would be requested and authorized through the operating budget of the National Park Service. The regional 

partner identifi ed in the proposed park’s authorizing legislation would also be eligible to receive assistance for its 

work in support of the purposes of the park.

Legislative Requirements

Legislation authorizing a new unit of the National Park 

System and designating a regional partner as a formal park 

partner would be required.

Cost Estimates

Annual Costs

 Operations (salaries and other operational costs)

 $3,500,000

One-Time Costs

 Research (HRS, CLRs, HSRs, NRHP docs)

 $815,000

 Planning (GMP/Preservation Plans)

 $1,100,000

 Construction/Rehabilitation (Rehab/Reuse 

structures at 4 locations)

 $4,000,000

 Exhibits (Develop/Install uniform orientation 

exhibits at 4 existing VCs)

 $200,000

Research could include the completion of a Historic Resource Study (HRS), Cultural Landscape Reports (CLR) 

for each site or district, Historic Structures Reports (HSR) 

for buildings anticipated to be rehabilitated for interpretive 

use within the historic districts, and updated National Register documentation. Planning would include the development of a General Management Plan (GMP) and a series 

of preservation plans that would address the specifi c preservation requirements of each site or district. Remaining 

one-time costs address developing and installing uniform 

orientation exhibits at four existing visitor centers and creating rehabilitating structures at up to four locations for 

interpretive purposes.
CHAPTER FOUR : MANAGEMENT OPTIONS | 83

Other Recommendations

During the course of the study process, the study team 

made other observations that did not directly apply to this 

particular assessment of the Blackstone River Valley, but 

that do merit further consideration. These recommendations could have broader implications for the Blackstone 

River Valley and beyond.

Industrial History Theme Study

The National Park Service should consider updating the 

1966 Industrial History Theme Study to refl ect contemporary interpretations of the nation’s industrial development 

and consider the varying pathways to industrialization as 

articulated by Walter Licht of the University of Pennsylvania and others. In recent years, NPS has undertaken many 

studies considering the possible inclusion of industrial heritage resources in the National Park System. With each of 

these efforts, the study team has been confronted with the 

same set of questions relative to evaluating national signifi -

cance. An updated Industrial History Theme Study would 

provide the necessary context for consistent evaluation of 

these resources.

Native Americans in Southern New England 

Study

The Blackstone River Valley was a cross road for commerce and communication among a number of Southern 

New England tribes, many of which are federally recognized. These Native American communities continue to be 

part of the historical, social, political, and economic fabric 

in the region. Their infl uence is evident in the pattern of 

Native American and colonial settlement, regional confl ict 

(King Philip’s War), agriculture, regional road systems, etc. 

While it is assumed by many that Native Americans simply 

disappeared from the region centuries ago, Indian tribes relate that they were part of the social and economic fabric 

of the region after King Phillip’s War, and were important 

participants in the economy that grew up in the Valley. NPS 

should consider undertaking a collaborative research project to document this history and the ongoing legacy of the 

tribes in the Blackstone Corridor and surrounding areas of 

Southern New England.

Alternatives Considered but 

Dismissed

Designating the Blackstone River Valley as a 

whole as a unit of the NPS

The study team considered but dismissed the possibility 

of designating the Blackstone River Valley as a whole as a 

unit of the NPS, due to feasibility considerations related to 

administration and resource protection in a large geographic area, where there would be limited public ownership and 

a substantial and complex overlay of jurisdictions.

Reauthorization of the Corridor Commission 

and making it a permanent federal body

The study team considered but dismissed the possibility of designating the Commission as a permanent federal 

body, because Public Law 109-338, the John H. Chafee 

Blackstone River Valley National Heritage Corridor Reauthorization Act, was clear in extending the Commission’s 

authority only until October 2011. Any extension of the 

Commission’s authority beyond that date would need to be 

congressionally initiated.

Creating a National Park unit with multiple 

units and having an advisory/operating 

commission similar to that at Keewenaw 

National Historical Park

The study team considered but dismissed the possibility 

of creating a park with an advisory/ operating commission, 

due to concerns about the clarity of roles and responsibilities and additional layers of bureaucracy that such a management structure seemed to imply.

Creating a Bi-State National Historic Reserve, 

as an affi liated area of the National Park 

System

The study team considered but dismissed the possibility of creating a bi-state national historic reserve as an affi liated area of the National Park System, because existing 

fi scal conditions, combined with concerns about a lack of 

a proposed federal body to provide cohesion between the 

states, made such a proposal unworkable.

Blackstone River Valley Industrial Heritage 

Network

The study team considered but dismissed the possibility 

of establishing a permanent program that would recognize 
84 | BLACKSTONE RIVER VALLEY SPECIAL RESOURCE STUDY

industrial heritage resources throughout the Valley and provide assistance for their long-term protection and interpretation. This alternative was presented to the public in a June 

2010 newsletter and at subsequent public meetings in July. 

The resulting feedback indicated that there was little to no 

support for this alternative and that it was a source of great 

confusion within the context of the Corridor. It was diffi cult to distinguish between the roles of the network and 

the Corridor.

Blackstone River Valley Pathway to Industry 

National Historical Park

The study team considered but dismissed the possibility of establishing a unit of the National Park System that 

would encompass Old Slater Mill, Slatersville, and Ashton 

(all in Rhode Island). This alternative was presented to the 

public in a June 2010 newsletter and at subsequent public meetings in July. Comments received at this time highlighted the limited scope of this alternative and its failure to 

address the later period of development in the Blackstone 

River Valley’s industrial history.

Environmentally Preferred 

Alternative

The NPS is required to identify the environmentally preferred alternative in its NEPA documents for public review 

and comment. The NPS, in accordance with the Department of the Interior policies contained in the Departmental 

Manual (516 DM 4.10) and the Council on Environmental Quality’s (CEQ) NEPA’s Forty Most Asked Questions, 

defi nes the environmentally preferred alternative (or alternatives) as the alternative that best promotes the national 

environmental policy expressed in NEPA (Section 101(b) 

(516 DM 4.10). In their Forty Most Asked Questions, CEQ 

further clarifi es the identifi cation of the environmentally 

preferred alternative, stating “Ordinarily, this means the alternative that causes the least damage to the biological and 

physical environment; it also means the alternative which 

best protects, preserves, and enhances historic, cultural, 

and natural resources” (Q6a).

Management Option 3: Blackstone River Valley Industrial Heritage National Historical Park would be considered 

the Environmentally Preferred Alternative for the following reasons:

• This management option best supports the project 

goals articulated in Part One of the study. These 

goals call for a regional approach to protecting 

and interpreting industrial heritage resources, thus 

addressing the protection of the natural, cultural, 

recreational, and scenic values that provide its 

context and the connections among non-contiguous 

resources.

• Through the proposed relationship with a regional 

partner that would be tasked with working beyond 

the park boundary, this management option offers 

the greatest opportunity for NPS to support both

interpretive and protection efforts throughout 

the Blackstone Valley; and could bring about a 

greater level of resource protection; and could 

foster a greater level of public understanding 

and appreciation of these resources than either 

Management Options 1 or 2.

Most Effi cient and Effective 

Alternative

In addition to being considered the Environmentally 

Preferred Alternative, Management Option 3: Blackstone 

River Valley Industrial Heritage National Historical Park, 

is also considered to be the “Most Effi cient and Effective 

Alternative.” The partnership approach described under 

this management option would increase the potential for 

preservation, restoration, and rehabilitation of industrial 

heritage resources throughout the Blackstone River Valley. 

In addition to enhancing the climate for resource protection, this management option also maximizes opportunities 

for a more complete understanding of the signifi cance of 

the Samuel Slater and the Rhode Island System of manufacture and its role in the industrial development of the 

United States.

The partnership nature of this management option 

would foster greater opportunities to work with state and 

local governments, non-profi ts, and academic institutions 

to engage in collaborative research. It would also provide 

for further leveraging of federal fi nancial contributions for 

resource protection and interpretation with matching state, 

local, and private fi nancing.

Under this management option, visitors would continue 

to be provided an integrated resource-based experience in 

which individual sites would provide coordinated and integrated interpretive programming. This integrated approach 

is the best way to convey the story of the emergence of the 

American textile industry as it evolved in the Blackstone 

River Valley and infl uenced the course of American industrial history.