Committee on Ordinance Public Hearing on Student Impact Fee - November 13, 2025

The Providence City Council Committee on Ordinance held a public hearing on November 13, 2025, at 6:10 PM to hear testimony on a proposed ordinance (Item No. 1) that would add Article 10 to Chapter 13 of the Providence Code of Ordinances. The ordinance would impose a $300 annual student impact fee on property owners of exclusive student housing, require data collection from colleges, and include non-compliance penalties of up to $500 per day. No vote was taken; the hearing was solely for public input, with written submissions also entered into the record.

Public Comments & Testimony

• John Garrahee (attorney representing landlord Walter Brownhart) testified in opposition, arguing the fee is a tax that requires General Assembly approval, is unconstitutional under a recent Supreme Court ruling, and does not meet the proportionality requirements of Rhode Island's Development Impact Fee Act.
• David Baskin (owner of student housing on College Hill) testified in opposition, stating that the fee would be passed to students, harm local businesses (e.g., restaurants on Thayer Street), and discourage investment in Providence, potentially forcing him to sell to Brown University, which would remove properties from the tax rolls.
• Joanne Ridge (resident) testified in support, criticizing the mayor's PILOT agreements for leaving revenue on the table and arguing that the fee targets commercial entities that exploit neighborhoods near Providence College, with corporations charging high rents and creating density problems.
• Shannon Russell (Operations Manager, 02908 Club) testified in opposition, stating that her company pays over $1.5 million in annual taxes, has a positive relationship with students and police, and that the fee will inevitably be passed to students. She disputed claims of exploitation and noted 1,700+ petition signatures against the ordinance.
• Kevin McKeaney (senior at Providence College) testified in opposition, arguing that students already pay high rents and taxes (including through higher property tax rates on non-owner-occupied housing), that a flat fee is unfair, and that it would disproportionately affect in-state students and strain local businesses.
• Dexter Strong (College Hill resident) testified in support, detailing repeated noise, garbage, and party problems from student houses (89 incidents reported to Brown, 43 calls to police, 48 311 reports since May 2022). He argued that existing enforcement is broken and that the fee would fund proactive measures, as done in Boston and Philadelphia.
• Nina Markov (President, College Hill Neighborhood Association) testified in support, explaining that investor-owned student housing has displaced working families, converted family homes into high-density mini-dorms with rents up to $15,000–$18,000 per month, and that the fee (as part of a package) would hold landlords accountable.
• Boyang Yang (grad student and homeowner) testified in opposition, stating the fee would be a double tax on graduate students (who already pay income taxes and contribute to city services), that it is a blanket measure not tailored to specific problem properties, and that it would harm the very students attracted to Providence.
• Daryl Cena (resident of Ward 14 for 29 years) testified in support, expressing frustration with garbage, rats, and parking issues from student houses, and stating that large landlords profit while neighbors bear the costs.
• Andrew Poyan (Ward 14 resident and former council candidate) expressed concerns but suggested the fee should be on colleges, not students or small landlords, and that tiered taxation could disincentivize mega-landlords.
• Ron Barron (Ward 14 resident) testified in opposition, arguing that the fee would not prevent disruptive parties (like the Halloween incident), would burden all students irrespective of behavior, and conflates accountability with impact.
• Sam Levy (landlord and Washington Park resident) testified in opposition, calling the fee "taxation without representation," noting that non-owner-occupied properties already pay higher tax rates, that landlords cannot control tenant behavior, and that enforcement should be a police matter.
• Hogan Wagner (Providence College student) testified in opposition, stating the fee will be passed to students, questioned the $300 amount and where funds would go, and called for improved waste services and more targeted enforcement rather than a blanket fee.
• Noah Rosa (Providence College student) testified in opposition, arguing the fee is discriminatory, inflationary, and that calling it a "landlord fee" is misleading because it will be passed to students.
• Eustace Devinish (small landlord in Ward 14) testified in opposition, stating the fee would hurt small landlords, unfairly penalize those who provide housing to students, and reward non-compliant landlords by using fee revenue for code violation repairs.

Discussion Items

• Councilwoman Peterson (sponsor) provided an overview, emphasizing that the fee applies to landlords of exclusive student housing, not students; that funds would go to the Home Repair Fund for low-income homeowners; and that data collection from colleges is needed to understand enrollment expansion impacts. She dispelled "myths" and noted that landlords profit heavily (e.g., $7 million in rent in Elmhurst alone).
• Councilman Royus commented that he views the ordinance as one of few tools to discourage student housing development, which he argued displaces families and raises rents. He noted that the city's PILOT agreement with colleges restricts charging fees directly to institutions.
• Councilwoman Ateira Grades was present but did not speak.

Key Outcomes

• No vote was taken; the hearing was for testimony only.
• Written comments and letters were entered into the record, including petitions both in support and opposition.
• The chair thanked all participants and concluded the public hearing, inviting further written submissions.