Providence is home to numerous colleges, universities, and hospitals that provide significant value to the city. However, unlike residents and businesses, these institutions pay no property taxes due to their nonprofit status. In lieu of these institutions not paying property tax, how is the value they bring to the surrounding community quantified? In the last two years, each of the four private colleges have tried to do that via a report on their Community Contributions.
What is PILOT?
Of Providence’s 18 square miles, about 39% of the land area is non-taxable—the largest percentage of any community in the state. The State compensates about 27% of the taxes that the Providence would have received, and these payments are referred to as PILOT money—Payments in Lieu of Taxes.
The City has also negotiated directly with Providence private colleges and hospitals for its own PILOT funds. Most recently in 2023, Mayor Smiley announced a major “financial achievement” with a new 20-year Memorandum of Understanding (MOU) agreement from the city’s four private colleges, totaling $7 million in PILOT funds. At the end of the 20-year period, with incremental increases built in, the colleges will be paying the city a total of $11.4 million In PILOT funds by fiscal year 2042.
A key feature of the 2023 MOU was the requirement that they also provide and report “Community Contributions” to the City, and the value of that contribution was to equal, or be greater than, their PILOT payment. The Mayor’s Office and the colleges negotiated the different types of contributions that would be considered, such as support for parks, non-profits, and K-12 education.
Community Contribution Reports: Determining the Value of Contributions Outside of PILOT Funds
The reports on community contributions certainly serve both the colleges’ and the City’s messaging goals. The reported value of the colleges’ non-PILOT contributions far exceed the amount of their cash PILOT payments, helping to make the case that the schools essentially earn their tax exemptions through other forms of community benefit.
However, the community as a whole, if not the City budget, stands to gain a great deal by accessing the opportunities for collaboration and community service available at all four schools.
Does the Cost of Doing Business Count as a Community Contribution?
Many of the data items (not most of the dollar value reported) simply re-frame ordinary costs of doing business at any large enterprise as philanthropy. These include standard operating costs such as business association dues, security, and the maintenance of green spaces. Scholarships for Providence residents are also an ordinary business expense for higher education. With minor exceptions, Providence resident students receive the same assistance as students from other cities—not additional benefits.
Under the negotiated MOU, these items count toward the community contributions goal, but in fact, they yield no extra value to either the city’s treasury or its citizens. Similarly, some of the “contributions” listed, while providing economic impact in the city, are dubious “community contributions.” For example, should $3 million in purported economic benefits from PC Basketball games constitute an institutional payment to public parks and spaces? Does RISD’s $2.9 million expenditure to construction companies for campus improvements really represent support for city “programs, services and activities?”
Without clear policy direction from the city and regular city feedback determining what “counts” as a community contribution and what doesn’t, the expenses deemed as community contributions vary widely, with each school interpreting the “community contribution” within their own institutional context.
The “extra credit,” data on economic impact also represent the costs of operation, not philanthropy. Some data here are solid and pertinent to assessing the worth of hosting a university, such as the amounts paid as wages to Providence residents and local purchases. Some are speculative—the economic impact of each institution is determined by that school’s own criteria and the value they assign to it.
Real Community Support and Room For Much More
There are many important and substantial investments in the community that, by and large, deliver real added value and benefits to Providence residents that no for-profit enterprise would make. These are 1) cash and in-kind support to nonprofits, 2) free labor in the form of interns, volunteers and pro-bono services provided to nonprofit organizations, and 3) support to K-12 education.
Universities make these investments because they enhance their student experience, improve educational outcomes, and provide close-at-hand opportunities for real-world scholarship and research. Increasing pressure on colleges to provide educational relevance and value motivates them to do even more. At a minimum, they provide new resources to schools and nonprofits. At their best, they stimulate innovation and improvements in vital human services and K-12 education in Providence.
All of the colleges say they want to do more, particularly with student service and placements in schools or at nonprofits, but also non-cash supports such as use of campus facilities. Brown’s collaborative infrastructure is the most robust and dynamic, but all four colleges have points of connection that schools and nonprofits can use. Providence College provides the most hours of student services annually.
Community-based nonprofits and schools need more awareness of these potential resources and support in developing feasible and useful plans for collaboration. The Providence Public School Department already has partnerships with PC, Brown, and RISD. And, importantly, the city must clarify who determines the value of these community contributions in order to ensure that Providence institutions of higher education are reporting their impact consistently. Without clear and consistent standards for what counts as a contribution, it will be difficult to determine if the goals of the PILOT MOUs are being met.
Providence College
Location: Elmhurst, Wanskuck, Smith Hill
Enrollment: Undergraduate: 4,500, Graduate: 500, Total: 5,000
Staff: Faculty: 500, Staff: 1,200, Total employees: 1,700
Annual Budget: $390 million Endowment: $380 million
FY 2025 PILOT Cash Payment to Providence: $739,500
FY 2025 Reported Community Contributions: $11.4 million
FY 2025 Additional Reported Economic Contributions: $50.5 million
Providence College (PC) has a long tradition of providing community service that receives support from the President’s Service Board Committee. The Service Board is responsible for coordinating information on community service. PC also is the home for the Feinstein Institute of Public Service.
So, when the City of Providence negotiated with the college in 2023 to report on in-kind and cash community contributions, “it was in PC’s institutional wheelhouse,” indicated PC’s Director of Public Affairs Stephen Maurano.
| Providence College Contributions (as reported by PC) | FY 2025 |
| Providence resident PC financial aid | $5,612,774 |
| Support of public spaces and related spending | $4,516,843 |
| Support of K-12 education | $ 430,176 |
| Payments to Providence Police details | $ 383,843 |
| Non-financial support to City non-profits | $ 363,554 |
| Financial support to City non-profits | $ 87,938 |
| Attributable Spending Total | $11,395,128 |
Community Contributions Highlights
Support of public spaces and related spending: $4,516,843
PC contributed several thousand dollars of in-kind activities related to park cleanups and park improvements. But about $4.4 million in this category is attributable to one PC entity: the Providence College basketball program.
Included are PC’s rental payments to the Amica Mutual Pavilion (AMP) for 16 home basketball games ($700,790) and the economic visitor spending impact of an NCAA first round of games hosted by PC ($3,764,738).
The City MOU required PC to include these numbers as Community Contributions; however, visitor spending dollar values might be considered in the category below, “Additional Economic Benefits,” in future years.
Support of K-12 education: $430,176
PC has significant outreach to the schools in its surrounding neighborhood areas. Contributions include in-kind and cash support to Pleasant View School, Times2 Academy, Harry Kizarian, Nathaniel Greene, and Robert F. Kennedy. In addition, it provides in-kind student support and cash to the five Catholic K-8 schools in Providence.
The work by PC’s School of Education and Social Work is noteworthy. It provided student teachers for several hundred hours during the school year for student practicums at both Pleasant View School and Time2 Academy. The in-kind value for FY 2025 was about $320,000. Cash support for the teachers who monitored these student teachers was about $10,000.
The total hours of student in-kind service provided to Providence schools in FY2025 was 11,120.
Non-financial support to City non-profits: $363,554
These contributions to nonprofits are largely in-kind and accomplished by 3,700 hours of community service by PC students. This category represents the heart and soul of PC student service in the Providence Community.
In addition to local organizations — such as the DaVinci Center, St. Patrick’s Church, St. Edward’s food pantry, and the Smith Hill Development Corporation — PC students also provide help to a variety of city and state organizations, such as WaterFire, Brown University Health, the Providence Children’s Museum, and the Roger Williams Park Conservancy.
Financial Support to Providence Non-Profits: $87,938
In this category PC’s provided cash donations for specific activities or sponsorships to 25 neighborhood and other city and statewide organizations, including Smith Hill Center, St. Edward’s Pantry, Ward 14 coat drive, the Providence Recreation Department, Crossroads RI, and College Visions.
Additional Economic Contributions: $50,573,937
While this category is not required to be reported, it is nonetheless significant to mention. The total dollar value breakdown is as follows:
Payroll for PC employees residing in Providence $28,342,358
Visitor spending associated with PC sporting events at the AMP $22,231,579
How to Connect
The number of students providing service in FY 25 was over 1,600 out of a total undergraduate student body of 4,500 students. There is leadership in the “Service Board” there are organized student organizations, such as: Friars Serve, Urban Action, Campus Ministry, and sports teams who are committed each year to community service; and there is a formal campus online portal for students looking for volunteer opportunities.
According to Alcyia Pessoa of the PC Public Affairs, Community and Government Relations office, “PC is working to establish a portal on its website to make it easier for community organizations to connect with the college.”
Rhode Island School of Design
Location: College Hill/Downtown
Undergraduate Enrollment: 2,163, Graduate: 443, Total: 2,606
Staff: Faculty: 519, Staff: 692, Total employees: 1,211
Annual Budget: $235 million
Endowment: $435 million
FY 25 PILOT Cash Payment to Providence: $612,000
FY 25 Community Contributions: $6,273,572
Additional Economic Contributions: $31,588,806
The Rhode Island School of Design (RISD), at 2,163 undergrads, is the smallest of the four private colleges in Providence that signed a PILOT Program MOU with Providence in 2023. At 13+ acres it also has the smallest footprint in the city of the four private universities.
| RISD Community Contributions (as reported by RISD) | FY 2025 |
| RISD facility contract improvements with Providence firms | $2,935,818 |
| Providence residents RISD students financial aid | $1,958,109 |
| Tax Revenue Generated by RISD Commercial Leases | $705,699 |
| Contributions/Financial Support to K-12 Education | $325,575 |
| Contributions/Financial support of non-profits | $193,413 |
| Services/payments provided for parks and public spaces | $154,758 |
| Total | $6,273,572 |
Community Contributions Highlights
Contributions/Financial Support of K-12 Education: $325,575
Two-thirds of the dollar value of this category represents Master of Arts in Teaching (MAT) students doing student teaching art at Hope High School and the Martin Luther King School. “This is a coordinated effort between RISD and the Providence Public School District (PPSD),” according to Beth Costello, the head of RISD’s Center for Community Partnership. “RISD matches student teachers with schools needing art educators. These placements are supervised by both school-based educators and RISD faculty.”
The remainder of this category is related to RISD’s Project Open Door program which provides funding for Providence schools to access and learn at the RISD Museum in after school and summer programs. RISD also offers professional development workshops for PK-12 teachers in Providence schools.
Contributions/Financial support of non-profits: $193,413
Each summer College Visions partners with the PPSD to provide a six-week college and career exploration program for PPDS students. RISD provides discounted space rental for College Visions and it accounts for $121,445 of this community contribution. The other significant items in this category are cash and in-kind sponsorships for scores of local organizations’ events, including Fringe PVD, Providence Student Union, Langston Hughes Community Poetry Reading, Gallery Night Providence, and Waterfire.
Additional Economic Contributions: $31,588,806
Approximately one-third of RISD employees are Providence residents. The payroll of $31 million for these employees accounts for most of this category.
How to Connect
The RISD community contributions are managed by RISD’s Center for Community Partnerships (CCP), headed by Bethany Costello. The CCP receives and vets sponsorships for one-time events. The request form is located on RISD’s website.
Brown University
Locations: East Side and Jewelry District
Enrollment: 11,165 (includes graduate and medical students)
Staff: Faculty: 1,740, Staff: 3,971, Total employees: 5,711
Annual budget: $1.87 billion
Endowment: $8 billion
Cash PILOT FY2026:
Base agreement: $5.28M
Supplemental agreement (for 10 years): $5M
Total: $10.28M
| Brown University Community Contributions (as reported by Brown) | FY2025 |
| Support to nonprofits | $17,119,932 |
| Resident scholarships | $6,357,085 |
| Taxes on commercial leases | $3,301,464 |
| Interns, volunteers and pro-bono services | $2,022,592 |
| Support to K-12 Education | $1,139,388 |
| Dues to Business Improvement Districts | $118,987 |
| Public space services | $97,000 |
| Public space contributions | $54,500 |
| $30,210,949 |
Community Contribution Highlights
Support to nonprofits: $17 million
Almost 99% of Brown’s direct support for nonprofits was reported as cash payments from Brown’s Division of Research to community partners participating in collaborative research projects with Brown faculty and students, largely for public health and medicine. One example is research assessing culturally tailored strategies to improve diet and reduce risk factors for diet-related chronic diseases in partnership with the Center for Southeast Asians.
The remaining balance mostly represents fundraising event sponsorships, including $61,000 for Waterfire, and on-campus fund drives for specific nonprofits.
Resident scholarships: $6 .3 million
Brown provides free enrollment in pre-college and high school summer programs specifically for Providence residents, but most of this category ($5.2 million) falls under financial aid available to any Brown undergraduates who qualify based on income and academic achievement.
Interns, volunteers and pro-bono services to nonprofits: $2 million
Projects reported range from volunteerism at food banks or coat drives, to months-long internships and fellowships. The Watson School, the Swearer Center for Public Service, and many other on-campus departments and units provide paid and unpaid fellowships and internships that place Brown students at dozens of schools and community organizations.
Support to K-12 Education: $1.1 million
Brown University has created a Public Education Advisory Committee exclusively dedicated to supporting Providence Public Schools. This body coordinates Brown’s work with PPSD and directs Brown’s Fund for the Education of the Children of Providence, a $10 million endowed fund that generates about $400,000 to $5,000,000 per year for Providence schools. Brown programs such as Brown Summer High, the Watson School, and the Ruth J. Simmons Center offer a range of free on-campus programs to Providence students. Many departments provide on- and off-campus field trips, lectures and experiences such as experimental science. Brown has contributed considerable staff time as well as $250,000 in cash to the School Redesign process at Hope High School.
Reported economic impact: $367 million per year (not counted as community contributions)
About 32 percent of Brown’s employees live in Providence, collectively earning $179.5 million a year. The University calculates that it purchases $186.4 million in goods and services from Providence-based businesses.
How to Connect
Brown, the largest of the four schools, has not only made the most extensive community contributions, but has put the most thought into what it wants to achieve and how to go about it.
Brown’s 2024 Community Engagement Agenda makes an institutional commitment to service “to the community, the nation and the world.” This document lays out key engagement strategies and pathways for connecting town and gown. Brown also released its own narrative 2025 Community Contributions report.
“Know that we are interested in connecting with you,” says Mary Jo Callan, Executive Director of Brown’ Swearer Center for Public Service. “When we connect faculty and staff with community programs, the research is deeper, sharper, more nuanced. And our students are going to learn a ton.”
With the diversity of resources at Brown, the challenge is connecting the right partners with the best opportunities. The Center is building a constituent management system designed to capture and connect Brown’s many resources and opportunities for community collaboration.
“If you know someone and can work something out that’s great,” says Callan. But if you don’t know where to start or want to explore many possibilities, contact the Swearer Center at [email protected].
Johnson & Wales University
Locations: Downcity and Harborside campuses
Enrollment: 4260
Staff:1,740 (estimated)
Annual budget (FY2024): $244.6 million
Endowment: None. ($364 in investments in 2024)
Cash PILOT FY2025: $612,000
FY25 Reported MOU Community Contributions: $5,339,203
| Johnson & Wales Contributions (as reported by JWU) | FY2025 |
| Resident scholarships and financial aid | $3,945,194 |
| Support to non-profits | $1,130,354 |
| Public space payments | $98,504 |
| Public safety | $42,881 |
| Support of K-12 education | $33,397 |
| Services to city employees | $31,806 |
| Public space services | $25,000 |
| Pro-bono services | $24,650 |
| District Management Authorities | $7,415 |
| Attributable Spending: Total | $5,339,203 |
Community Contribution highlights
Resident scholarships and financial aid: $3,945,194
Providence residents are eligible for the same aid packages as all students at JWU.
Support to non-profits $1,130,354
Internships and placements for JWU students at local nonprofits made up most of the contribution in this category. Ninety-five students in the nursing, physician assistant, and occupational therapy programs provided 25,000 hours of service. Other student interns provided on-site support to Better Lives Rhode Island and other Providence organizations.
More than 500 JWU students provided 4,430 hours of service at 38 community organizations and events. During the end-of-year Move Out and Donate Program, JWU students provide food, clothing, and household goods to local nonprofits.
Pro-bono services $24,650
JWU provides free space for a range of community service and cultural organization events.
Reported economic impact $686,158,240 (not counted as a community contribution)
JWU says this figure, which is twice what Brown University reports, is based on a 2021 economic impact study. This discrepancy between the two schools’ reports demonstrates the lack of clear guidelines from the City on what Providence PILOT participants should report or how to calculate this element of the report.
JWU employs 244 Providence residents (14% of all employees) who earned a total of $10,221,228 in 2025.
How to Connect
Like other schools, Johnson & Wales seeks hands-on experiences for students, with perhaps more emphasis on training for specific career paths than its liberal arts peers. The school is looking for opportunities to highlight its newer and less well known programs, particularly nursing, nutrition, and physical therapy.
“Many schools have been moving toward experiential education,” says JWU Providence Campus President Joseph Greene. “We’ve been doing that forever. We’re looking for mutually beneficial agreements. We’re open to anything that benefits our students and the community.” One idea might be to connect JWU business students with nonprofits needing budgeting and forecasting assistance.
Greene says the community’s best approach to collaboration with JWU is to contact Tara McGee ([email protected].) in his office. From there, a team will seek to match potential partners with the best resources.
Jonathan Howard is Co-founder of Cause & Effect, Inc., a consulting company that provides strategic planning facilitation, fund development planning and board strengthening to mission-driven organizations. He is a long-time resident of Providence.
Bob McMahon has been a Providence resident since 1978. While an officer in the US Navy, he participated in the recovery of the Apollo 11 astronauts in the Pacific Ocean in 1969. He has a city planning background and worked in the Providence Parks Department for 30 years, first as Deputy Superintendent under Nancy Derrig and later as Superintendent. Married to Pam Kennedy, they have two adult sons, James and Robert. He is a volunteer for the San Miguel School and St. Pius V Church in Providence.
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