umass ced report on 150 front st

8/10/2019 UMass CED Report on 150 Front St.

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150 FRONT STREET

WEST SPRINGFIELD, MA

Site Assessment and Redevelopment Potential

2014

University of Massachusetts Amherst

Center for Economic Development

Department of Landscape Architecture and Regional Planning

Prepared for the Town of West Springfield by:

Allyson ManuelJesse Regnier

Alexander Train

Photo by: Christopher Goodreau


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1 UMass CED 2014

IntroductionThe UMass Amherst Center for Economic Development (CED) was hired by the Town of West

Springfield (Town) to conduct a study of the property at 150 Front Street and the neighborhood

surrounding it. The CED was tasked with the objectives of completing a comprehensive report

composed of an Inventory of the project area, an Analysis of the strengths and weaknesses, and

Recommendations for the successful revitalization of 150 Front Street. Additionally, the CED was

asked to hold a public workshop to engage the local public and key stakeholders and encourage

them to voice their opinions, concerns, ideas, and any other thoughts they might have about the

project. Our methodology in completing this report included independent research and collection

of statistical data, meetings with public officials and property owners, site tours, and the

aforementioned public workshop.

Table of Contents

1. Inventory1.1. Demography ________________________________ 31.2. Site Conditions ______________________________ 101.3. Utilities ____________________________________ 121.4. Transportation ______________________________ 131.5. Environmental Factors ________________________ 141.6. Local Policy ________________________________ 18

2.

Analysis2.1. Intro_______________________________________ 202.2. Demographics_______________________________ 202.3. Planning and Policy __________________________ 202.4. Site Conditions ______________________________ 232.5. Transportation_______________________________ 252.6. Environmental Factors ________________________ 26

3. Recommendations3.1 Recommendations ____________________________ 293.2 Inventory of Potential Funding Sources____________ 37

4. Action Steps for Moving Forward_________________________ 45

5.

AppendixesA. Results from Public Workshop on 8/14/14 _________ 47B. Overlay District: Waltham, MA _________________ 50C. Riverwalk: Ludlow, MA _______________________ 57D. Walkability Improvements: Westfield, MA_________ 58


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Map of Study Area


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65 to 74 years 2,093 7.4%

75 to 84 years 1,782 6.3%

85 years and over 625 2.2%

Source: U.S. Census American Community Survey 2012 5-Year Estimates

Residents of West Springfield possess varying levels of educational attainment (Figure 2).

The town is within a region that contains a plethora of institutions of higher education, such as

Western New England University (Springfield), University of Massachusetts Amherst (Amherst

and Springfield), Springfield Technical Community College (Springfield), and Holyoke

Community College (Holyoke). Springfield Technical Community College maintains an

increasingly publicized and highly-competent program that trains students in advanced precision

manufacturing, in addition to other related vocations1. Additionally, Holyoke Community College

maintains well-regarded nursing and ESL (English as a second language) programs.

Figure 2: Educational Attainment in West Springfield

Educational Attainment

Less than 9th grade 866 4.4%

9th to 12th grade, no diploma 1,494 7.6%

High school graduate (includes

equivalency)

6,361 32.4%

Some college, no degree 3,631 18.5%

Associate's degree 1,986 10.1%

Bachelor's degree 3,534 18.0%

Graduate or professional degree 1,738 8.9%

Source: U.S. Census ACS 2012 5-Year Estimates

1http://www.masslive.com/business-news/index.ssf/2014/07/springfield_technical_and_holyoke_commun.html


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Housing and Development

The Townspopulation is housed in 11,500 housing units, with over 500 additional vacant housing

units. Of all units, 43 percent are in multi-unit structures, 56 percent are in single-unit structures,

and approximately one percent is mobile homes, according to American Community Survey 5-Year Projections for 2012. As there are, on average, 731 housing units per square mile, the Town

encompasses a low-to-medium density settlement pattern. This broad pattern retains variation, as

certain areas are more densely developed, while others include a large amount of industrial land,

thus decreasing the amount of residential dwellings. Spatially, there are not notable neighborhood

divisions, as are present in surrounding communities such as Springfield and Palmer. These areas

are subsequently subdivided into neighborhoods, such as Downtown and Merrick to the south. The

majority of neighborhoods encompass single family homes on medium-sized lots of - of an

acre lot sizes differing throughout the town.

While current zoning does not discourage density, it does not implicitly facilitate it,

although there have been efforts to increase the number of units per acre (see Zoning section).

Aesthetically, many of the residential neighborhoods possess suburban characteristics. These

neighborhoods are frequently complemented by or are adjacent to retail and commercial centers,

including Memorial Ave., Union St, and Main Street in the Merrick neighborhood, and Westfield

Street in the Mittineague neighborhood. However, due to many areas of low density, and a strongpresence of post-WWII car-oriented development practices, routine pedestrian travel is unviable

in many cases. This is despite the presence of sidewalksthe town provides 5.11 miles of

sidewalks. Often, important amenities and jobs are located a sizeable distance from residences,

which require citizens to drive a car.

Generally, residential development is balanced with commercial and industrial

development. As detailed in the following section, West Springfield anchors numerous industries

with large volumes of employment. Moreover, the presence of small businesses, many related to

the manufacturing, transportation, and wholesale trade industries. These businesses populate a

variety of commercial buildings, many along major corridors. These locations are supplemented

by industrial and office parks.


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Typologically, residential neighborhoods are composed of single family and multi-family

homes. Ranches, capes, and cottages are the major types of housing structures. Multi-family homes

range from medium-sized apartment complexes to two-story detached structures. Numerous

single-family detached dwellings exist on the rental market. Approximately one-third of housing

in West Springfield are rental units. Comparatively, monthly rent is more affordable in West

Springfield than it is in neighboring Pioneer Valley communities. Figure 3 depicts the variation in

rental expenses. Tacitly, these statistics further contribute insight pertaining to the monthly rental

rates property management and developers charge, illustrating the low rents real estate owners can

charge, limiting their revenue from properties.

Figure 3:Number of Residential Rental Units Subject to Levels of Contract Expenses

Residential Rent

Total Units: 4,682

With cash rent: 4,589

Less than $100 14

$100 to $149 48

$150 to $199 21

$200 to $249 122

$250 to $299 64

$300 to $349 84

$350 to $399 149$400 to $449 117

$450 to $499 229

$500 to $549 294

$550 to $599 256

$600 to $649 307

$650 to $699 645

$700 to $749 510

$750 to $799 216

$800 to $899 725

$900 to $999 409

$1,000 to $1,249 227

$1,250 to $1,499 55

$1,500 to $1,999 14

$2,000 or more 83

No cash rent 93



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Economic and Industrial Climate

Figure 4: Socioeconomic Characteristics of West Springfields Population

Median household income 54,434

Per capita income 27,966Unemployed 1,455 6.3%

Mean travel time to work (minutes) 19.4

Below the Poverty Line in Last Year:

All people

12.5%

Below the Poverty Line in Last Year:

Under 18 years

20.6%

Source: U.S. Census 2012 ACS 5-Year Estimates

As evident in Figure 4, West Springfield has been actively emerging from the recent recession,

with an unemployment rate slightly above the state average, which is 6.0% as of 2014, according

to the Office of Labor and Workforce Development. Furthermore, the town retains a median

household income that is below the state average ($65,339), yet it rests above that of Hampden

County ($49,729). Unemployment also continues to incrementally decline, although there are no

figures for under-employment. Under-employment is defined as a workforce who are seeking full-

time, better paying positions, yet are currently employed in part-time and/or lower-wage positions.

Additionally, some poverty exists, sparsely distributed across the population. These phenomena

are continually targeted by concerted municipal and regional economic development efforts,

specifically by the Pioneer Valley Planning Commission, which are augmented by the presence of

numerous social services agencies throughout the region.

The manufacturing foundation that West Springfield was constructed on during the 19 th

and 20thcenturies continues to resonate today. Privately, West Springfields economyslargest

sectors by number of employees are healthcare and education (22.1%), insurance/financial services

(10.0%), and manufacturing (10.8%). Other industries in West Springfield that significantly

employ area residents include the Retail Trade industry (17.0%), Transportation and Logistics

(5.8%), and Professional/Management industries (7.6%). These figures share similarities with the

regional economic composition. Moreover, as West Springfield residents drive approximately 20

minutes to their place of employment, a significant number of them work within town limits.


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Figure 5portrays West Springfields largest employersas of 2013. Unfortunately, in the

time since this data was collected, three of the largest employers have moved or closed. It is

important to note, however, that in addition to these major employers, there is the myriad of small,

often family-owned, precision manufacturing shops that are present throughout Westfield, West

Springfield, Springfield, and Agawam. Many of these companies are contracted by Smith &

Wesson. While small in size, they collectively employ a significant number of regional residents

while remaining one of the most technologically advanced manufacturing clusters in the world.

Despite the technological aptitude of the precision manufacturing industry, a steady decline

in employment figures has occurred since the recession. In 2009, 20,481 people were employed

by industry in the Springfield Metropolitan Area. In 2012, this number was reduced to 19,747.

Data for 2013 and 2014 is unavailable, pending its release by the Bureau of Labor Statistics/U.S.Economic Census.

Figure 5: Top 10 Employers in West Springfield by Number of Employees

Company Name Address Number of

employees

Northeast Utilities Brush Hill Ave 500-999 Moved

Brightside-Families & Child Riverdale St 250-499 Closed

Home Depot Daggett Dr 250-499Interim Health Care Westfield St # 1 250-499

Itt Exelis Interstate Dr 250-499 Closed

Northeast Utilities No Location Given 250-499

Ups Wayside Ave 250-499

Big Y World Class Market Memorial Ave 100-249

Chili's Grill & Bar Riverdale St 100-249

Cyalume Technologies Holdings No Location Given 100-249

Source: Massachusetts Executive Office of Labor and Workforce Development 2013

Tract Level Demographics

The demographics of the tract in which 150 Front Street exists are somewhat different. The tract,

which is bordered by the Connecticut River and Westfield Street, contains a population of 3,744
http://lmi2.detma.org/lmi/employer_det.asp?gEmpID=450554860&gSICName=&astfips=25&aareatype=&aarea=000454http://lmi2.detma.org/lmi/employer_det.asp?gEmpID=008938151&gSICName=&astfips=25&aareatype=&aarea=000454http://lmi2.detma.org/lmi/employer_det.asp?gEmpID=454089533&gSICName=&astfips=25&aareatype=&aarea=000454http://lmi2.detma.org/lmi/employer_det.asp?gEmpID=106258635&gSICName=&astfips=25&aareatype=&aarea=000454http://lmi2.detma.org/lmi/employer_det.asp?gEmpID=429918204&gSICName=&astfips=25&aareatype=&aarea=000454http://lmi2.detma.org/lmi/employer_det.asp?gEmpID=423736307&gSICName=&astfips=25&aareatype=&aarea=000454http://lmi2.detma.org/lmi/employer_det.asp?gEmpID=400054171&gSICName=&astfips=25&aareatype=&aarea=000454http://lmi2.detma.org/lmi/employer_det.asp?gEmpID=400054171&gSICName=&astfips=25&aareatype=&aarea=000454http://lmi2.detma.org/lmi/employer_det.asp?gEmpID=889862611&gSICName=&astfips=25&aareatype=&aarea=000454http://lmi2.detma.org/lmi/employer_det.asp?gEmpID=889863304&gSICName=&astfips=25&aareatype=&aarea=000454http://lmi2.detma.org/lmi/employer_det.asp?gEmpID=387746506&gSICName=&astfips=25&aareatype=&aarea=000454http://lmi2.detma.org/lmi/employer_det.asp?gEmpID=387746506&gSICName=&astfips=25&aareatype=&aarea=000454http://lmi2.detma.org/lmi/employer_det.asp?gEmpID=387746506&gSICName=&astfips=25&aareatype=&aarea=000454http://lmi2.detma.org/lmi/employer_det.asp?gEmpID=889863304&gSICName=&astfips=25&aareatype=&aarea=000454http://lmi2.detma.org/lmi/employer_det.asp?gEmpID=889862611&gSICName=&astfips=25&aareatype=&aarea=000454http://lmi2.detma.org/lmi/employer_det.asp?gEmpID=400054171&gSICName=&astfips=25&aareatype=&aarea=000454http://lmi2.detma.org/lmi/employer_det.asp?gEmpID=423736307&gSICName=&astfips=25&aareatype=&aarea=000454http://lmi2.detma.org/lmi/employer_det.asp?gEmpID=429918204&gSICName=&astfips=25&aareatype=&aarea=000454http://lmi2.detma.org/lmi/employer_det.asp?gEmpID=106258635&gSICName=&astfips=25&aareatype=&aarea=000454http://lmi2.detma.org/lmi/employer_det.asp?gEmpID=454089533&gSICName=&astfips=25&aareatype=&aarea=000454http://lmi2.detma.org/lmi/employer_det.asp?gEmpID=008938151&gSICName=&astfips=25&aareatype=&aarea=000454http://lmi2.detma.org/lmi/employer_det.asp?gEmpID=450554860&gSICName=&astfips=25&aareatype=&aarea=000454


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residents who are housed in 1,725 units. These are a collection of single and multi-family homes.

With 690 rental units, residential rents warrant attention (Figure 6).

Figure 6: Number of Residential Rental Units Subject to Levels of Contract Expenses

Residential Rent

Total Units: 690

With cash rent: 690

Less than $100 0

$100 to $149 0

$150 to $199 21

$200 to $249 75

$250 to $299 48

$300 to $349 6$350 to $399 37

$400 to $449 0

$450 to $499 0

$500 to $549 11

$550 to $599 0

$600 to $649 22

$650 to $699 243

$700 to $749 11

$750 to $799 34

$800 to $899 97$900 to $999 18

$1,000 to $1,249 49

$1,250 to $1,499 18

$1,500 to $1,999 0

$2,000 or more 0


Compared to the town as a whole, the Front Street neighborhood maintains a lower medianhousehold income level, although the difference is small. Socioeconomically, the tract possesses

a higher unemployment rate when compared to the town. Property values in this tract are lower

due to the proximity of industrial development, such as Fibermark and the former Southworth

Paper Company, and the railroad. A snapshot of the tract is shown in Figure 7.


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Once inside the mill complex, access is provided by paved driveways which lead to the

buildings. All of the driveways are paved with asphalt with the exception of the driveway which

leads west from the entrance, parallel to Front Street, is covered with stone pavers. The stone has

settled and become overgrown with vegetation in some areas and provides for a more rugged

driving surface. Driveways in front of the main mill buildings are narrow with a sharp turn that

leads around to the back of the 150 Front Street building. This driveway to the rear of 150 Front

is used for loading trucks but is extremely difficult to maneuver.

Parking

The only substantial parking for both mill buildings is located on the eastern side of the mill

complex on the property owned by Fibermark, where the amount is sufficient for FiberMark

employees. On the 101 Front Street property, there is additional space on for expanded parking ifa building is demolished. Parking for 150 Front is currently created along the stone driveway and

along the driveway which travels in front of and around the main building. Neither of these

locations was originally intended for parking and the amount of space is limited.

Building Conditions

The mill complex is composed of 101 and 150 Front Street, each containing a large main building

south of the canal and a smaller building north of the canal. The 101 Front Street property is owned

and occupied by Fibermark, an international paper company that uses this sites 150,000 square

feet primarily for administrative purposes in addition to some research and design. The company

purchased the property in 1991 for 2 million dollars from the James River Paper Company, and

reports to have around 70 employees at this location. This property is currently assessed at

$708,000, up from $682,400 in 2013.

The 150 Front Street property is owned and occupied by Mr. Frank McIntyre who

purchased the property at auction in 2013 for just under $58,000 dollars. Mr. McIntyre uses a small

portion of the main building for his business, Tara Plant Construction, which specializes in power

and industrial plant maintenance. The remainder and majority of the main buildings 100,000

square feet are not being used. This property is currently assessed at $389,900, down from

$650,000 in 2013.


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The two main buildings appear structurally sound and are made primarily out of brick.

Many additions have been made to the original footprints of these structures over the years. The

stock house, the smaller northern building on Fibermarks property, is not considered fit for use

and demolition has been discussed amongst both property owners.

1.3 Utilities

Energy

Natural gas is available to Front Street and the mill complex and is supplied by Columbia Gas of

Massachusetts. Gas lines run under the rail lines and onto the mill property. However, the

assessors cards note that both 150 Front and Fibermarks property are configured for oil steam

heat. Hydroelectricity is also available to Fibermarks property at 101 Front Street and is provided

by A&D Hydro which owns and operates turbines on site. The water power for these turbines

comes from a dam located a half mile to the west. A&D Hydro also owns and operates the dam

and canal, and in addition to supplying electric power to Fibermark also sells electricity into the

grid. Electricity for the rest of Front Street, including 150 Front, comes from the grid and is sold

by Western Massachusetts Electric Company.

Water and Sewer

Front Street and the greater area are served by public water and sewer. Due to its low elevation

within the West Springfield Water Distribution system, Front Street and the mill buildings receive

good water pressure. Water supply is also more than sufficient and capable of meeting increased

demand. A formal testing of the pressure and flow into the mill complex has not recently been

completed. The water meter for the mill complex has also not been serviced recently and is likely

in need of replacement.

Regarding the condition of the water lines, Deputy Water Director of the Town of West

Springfield, Mr. Jeffrey Auer, is aware of two 8-inch lines supplying water to the two mills. These

lines were installed circa 1950 and their current functionality, as well as that of the smaller

connector lines on the property, is not known. However, calcification of the lines is expected and

a soft swab may be needed to clear thelines. Additionally, the Town pays CSX over $200 dollars

per year in rent for water lines that access the Mill properties which run beneath their rail lines.


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Internet and Television

Dial-up internet service provided by Verizon is available to Front Street and the mill buildings.

High-speed internet connectivity provided by Comcast is available to customers north of the rail

lines on Front Street but does not cross the lines into the mill complex. Currently Mr. McIntyre

utilizes the Verizon internet service at 150 Front Street, while Fibermark pays for a costly satellite

service which transmits a high-speed internet signal from downtown Springfield. Comcast also

does not offer its cable television services to the mill properties, though it does provide this service

to the rest of Front Street and the surrounding area. Instead, the mill buildings can receive

television service from Verizon or Dish Network.

1.4 Transportation

Infrastructure and Access

Front Street is located within 10 miles or less of the major interstate highways I-91 and I-90 as

well as Routes 5, 20, and 57. This places the site within close distance to access points leading

north, east, south, and west. The site is also located within a few miles of the CSX rail yard which

ships and receives cargo via rail and truck transit.

Access to Front Street from major routes and highways is gained by secondary municipal

roadways. Generally well paved and sufficiently wide, these secondary roads are easily passed bycar. However, Front Street is located at the bottom of a steep incline from Route 20, and this,added

with sharp turns,makes it less accessible for large trucks. Trucks coming from the South through

Agawam will also face a sharp curve on Front Street just after the bridge crossing the Westfield

River. Travelling north to or south from the Front Street curve can be delayed by trains passing

along the rail lines that run east to west through the mill complex. These passing trains also

regularly block the main entrance into the mill complex. Additionally, while railcars are being

built up and loaded for transportation at the rail yard one mile to the east, CSXs trains often sit on

the tracks over the entrance to the site and Front Street for periods of time greater than 10 minutes,

blocking access to the site and the bridge into Agawam.


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There are little means of transportation other than automobile, truck, and train on Front

Street and in the area immediately surrounding it. Public transportation does not extend down from

Route 20, though there is a bus line that passes through Agawam with stops near the bridge, which

is about a quarter mile from 150 Front Street. There are no formal bike lanes or paths anywhere in

the area, and pedestrian foot traffic on Front Street seems scarce. Notably, Front Street has no

consistent sidewalks to travel on, and crosswalks are largely absent from the area. The residential

streets to the north have some sidewalks, primarily only on one side of the street.

Traffic

According to a study completed by the Pioneer Valley Planning Commission, auto traffic on and

around Front Street is low to moderate with peak trip counts occurring between 11am and 5pm.

The western end of Front Street is a dead end and the eastern terminus is at the bridge crossing theWestfield River into Agawam where it then becomes Bridge Street. Traffic congestion is not a

problem with the exception of instances where the train is blocking passage along Front Street

towards or away from the bridge to Agawam.

1.5 Environmental Factors

Flood Hazard

The two mill properties are situated adjacent to the Westfield River and are unsurprisingly subject

to certain environmental sensitivities and concerns. According to the latest FEMA map dated July

16, 2013, the project area is located in Zone D, which is defined as an area in which flood hazards

are undetermined, but are possible. There is a strong possibility that the southern edge of

Fibermarks property is located within a 100 Year Floodplain; however, FEMA would need to be

requested to survey and define the boundaries of the zone. Some of the walkway leading from 150

Front Street to the dam owned by A&D Hydro appears designated Zone AE, though the maps

quality and scale prevent an accurate reading of the boundary of the zones and a survey would be

needed to accurately define the boundaries. The Zone AE designation means that land is part of

the Town of West Springfields Flood Hazard Overlay District which sets certain development

restrictions. Within the Flood Hazard Overlay District ordinance, there is section 7.39 which

details the prohibited structures and uses in a floodway. It states:


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In Zone AE, along watercourses within the Town of West Springfield that have had

a regulatory floodway designated on the Hampden County Flood Insurance Rate

Maps, within any Floodway, there shall be no new fixed structures and no

substantial improvement of existing structures, no permanent mooring of floating

structures or vessels, no storage of vessels, vehicles, structures, or materials other

than agricultural products originating on the site and no alteration of the channel

or topography. Encroachments are prohibited in the regulatory floodway which

would result in any increase in flood levels within the community during the

occurrence of the base flood discharge. (Town of West Springfield Zoning 2013)

The Towns Flood Hazard Overlay District also requires that any development in the overlay

district meet the following standards:

-The Massachusetts State Building Code that addresses floodplain and coastal highhazard area (currently 780 CMR) as amended;

-The Wetlands Protection Regulations, Department of Environmental Protection(DEP) (currently 310 CMR 10.00) as amended;

-The Inland Wetlands Restriction, DEP (currently 310 CMR 13.00) as amended;

-And the Minimum Requirements for the Subsurface Disposal of Sanitary Sewage,

DEP (currently 310 CMR 15, Title 5) as amended.

Once identified by the Conservation Commission as buildings partially or wholly located within

the 100 Year Floodplain, the Building Department is notified and sets building code standards for

any significant renovations or construction of new buildings. These standards may include blow

out windows, locating heating, electrical, and mechanical equipment above the Floodplain

elevation, and allowing the basements to purposefully flood.

A Notice of Intent (NOI) would need to be filed for any large renovations, construction, or

demolition of structures within the 100 Year Floodplain. For smaller projects, a Request for

Determination could be filed. The NOI would demonstrate that their project has no practicable

alternatives and will have no significant adverse impacts.


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review by the NHESP (Natural Heritage and Endangered Species Program) to see if the proposed

action will result in a take of a rare species or its habitat.

Brownfields

The site is not currently classified as a 21E hazardous area; this is contingent upon site reviews,

soil, and groundwater testing. Historically, however, four Release Tracking Numbers (RTNs) have

been associated with releases of oil or hazardous materials on the properties within the project

area:

-RTN 1-461 was opened in 1988 for James River Corporation (Front Street Bridge

Street). The release received regulatory closure with a Class A2 Response Action

Outcome (RAO) in 1995. A Class A2 RAO indicates that a permanent solution has

been achieved. Contamination has not been reduced to background.

-RTN 1-00837 was opened in 1990 for James River Premoid DIV (Front Street).

The release received regulatory closure with a Class A2 RAO in 1996.

-RTN 1-14599 was opened in 2002 for Former Rexam Front and First Street (70

Front Street). The release received regulatory closure with a Class A2 RAO in 2003.

-RTN 1-12496 was opened in 1998 for Former Hastie Fence Company (108 Front

Street). The release received regulatory closure with a Class A2 RAO in 1999. This

property is located on the northwest corner of Front Street and 1stStreet.

Based on this information, residual contamination may be present, but below Massachusetts

Department of Environmental Protection (MADEP) standards and no investigations are currently

ongoing or warranted. According to Ms. Kellie Niemiec and Mr. Kevin Daoust of the MADEP,

no open cases are on file for any of the properties in the project area. Additionally, none of the

closed cases have been audited. The MADEP has five years from the date of closure to audit a

case. Since each of the cases on the project properties were closed greater than five years ago,

they will not be subject to audits.


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upper level apartments. Not included in the inventory are the Fibermark and 150 Front Street

properties.

Permitting

The Town of West Springfield is currently in the process of adopting the Commonwealths

Chapter 43D expedited permitting program. Municipalities which take part in the program offer a

maximum 180 day local permitting process to established priority development sites. The Town

has asked Mr. Tarpey of A&D Hydro and Mr. McIntyre, the owner of 150 Front Street, to sign off

on 150 Front becoming a priority development site. In addition to the expedited permitting,

becoming a priority development site is also good for marketing in that it generates more

awareness and brings attention to the site. Participation in the Chapter 43D program does not

change or reduce any permitting requirements, however; rather it serves only to streamline theprocess and ensure that the Town handles requests in a timely manner. West Springfield officials

have noted that regardless of the 43D program, the permitting process is typically not long or

burdensome for work done in the Town.

Taxes

Property taxes for fiscal year 2014 are broken into two categories: residential and commercial. The

residential rate is $16.41. The commercial rate is $31.99.

Long Range Plans

Front Street and the area around are not specifically addressed in any municipal or regional plans

such as the 2013 Comprehensive Economic Development Strategy (CEDS) by Pioneer Valley

Planning Commission (PVPC), the 2004 Plan for Progress by PVPC, or the Town of West

Springfields Open Space and Recreation Plan.


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Section 2. Analysis

2.1 Introduction

The following analysis is a critical look at the results of our inventory of 150 Front Street and the

area around it. The goal is to identify the strengths and weaknesses of the property, neighborhood,

and Town with regards to having the right conditions for successful economic development and

revitalization. Both the inventory and this analysis look at a list of factors to determine those right

conditions, including local policy, infrastructure, demographics, and site and neighborhood

conditions. The list of factors is based on a composite of the UMass Center for Economic

Developments common gatekeeping issues for development and Barry Bluestones important

location factors from his article, What Makes Working Cities Work? Being aware of the assets

as well as the flaws and insufficiencies will then let us begin making recommendations.

2.2 Demographics

The Town has about 12,000 housing units, 43% of which are within multi-unit structures. Within

the 12,000 total units, about 5% are vacant (American Community Survey 2012, 5-Year

Estimates). The census tract in which our target area is contained includes 1,725 total housing

units, with 690 of those units being rentals. The high rate of rental housing in the Town overall

and the study area suggests that apartments are an important element of the housing stock.

Apartments and rentals in the Town are more moderately priced than many of the surrounding

towns and cities. The housing stock in the Mittineague neighborhood is primarily single family

detached and two-family homes, with a lack of high-end or luxury style apartments to serve

professionals, empty-nesters, and others who may be attracted to the centrality of the location.

2.3 Planning and Policy

The current zoning of the targeted area includes Residence B (RB) and Industrial. The stated

purpose of the RB zone is: toprovide for residential areas of higher density primarily for single-

family and two-family dwellings, while the purpose of the Industrial zone is: to providehigh-


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density areas for industrial uses, both heavy and light uses. Though the RB zone is representative

of and appropriate for the neighborhood north of Front Street, the Industrial zone is less suitable

for the area it encompasses. Despite the fact that residential uses are not permitted in an Industrial

zone, the land use map indicates that the Industrial zone around Front Street includes not only the

former mill buildings and surrounding businesses, but also several housing units in both residential

and mixed-use structures.

The pre-existing, non-conforming housing uses within the Industrial zone are notable

because despite the zone designation, the neighborhood has long been much more than industrial.

In fact, its industrial character has been fading in recent years. Heavy industry, once synonymous

with the Mill properties, has been replaced by offices and less intensive manufacturing.

Recognizing this long standing diversity and the evolution of uses in and around Front Street, itseems the zoning should reflect and encourage the longstanding demand for variety and flexibility.

Examples of how this can be achieved will be explored in the recommendations section.

In conjunction with the problematic zoning, there is a lack of design standards to guide

development and improvements to the area. Design standards can be very specific or more general,

and can cover a range of aspects including street-scaping, building geometry and dimensions, and

parking. The Industrial zone that currently encompasses the Mill buildings and other structures on

Front Street requires site plan approval for most uses; however, no comprehensive design standard

is applied when plans are being reviewed. The Residence B zone is also without any specific

guidelines for development. Having effective design standards can help encourage current

property owners, potential investors, and developers to make the area more cohesive and

aesthetically appealing while also creating consistency and predictability in the permitting process.

Without these guidelines the area is vulnerable to unsustainable development and other

problematic practices that can be harmful to the Town and its residents in the long run if not the

short.

Along with the lack of design standards, there is a lack of historic preservation, despite the

fact that Front Street and the residential streets to its north are all part of the historically significant

Mittineague neighborhood. The Mittineague section of town was centered around the former mill


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Being development friendly also means that the Town needs to have reasonable property

tax rates. At $16.41 for residential and $31.99 for commercial, West Springfield is much lower

than its neighbor Springfield which has rates of $19.41 and $39.04 for residential and commercial,

respectively. The Town also has rates slightly lower than Westfield, but slightly higher than

Agawam, two of its other neighbors. Realistically, their close proximity makes Agawam,

Westfield, and Springfield the biggest competitors when it comes to attracting potential investment

in industrial and commercial properties and so it is beneficial if West Springfield can offer lower

property tax rates.

2.4 Site Conditions

Front Street and the surrounding residential streets are connected to the Towns water and sewer

and receive very good water pressure owing to their downhill location within the larger network.

The total water available to the Town is also adequate and able to meet increased demand if it

occurs. Front Street and the surrounding area are also served by natural gas lines owned and

operated by Columbia Gas of Massachusetts. For electricity, the supply for West Springfield is

provided by Western Massachusetts Electric Company (WMECO), to which A&D Hydro, located

in the mill complex, sells electricity generated by their dam. In addition to selling into the grid,

A&D Hydro also sells a portion of their electricity to Fibermark. Mr. Tarpey, Vice President ofA&D Hydro, has not expressed interest in changing or expanding the sale agreements for the

electricity and any new demand at 150 Front Street would likely be served solely by WMECO.

Some infrastructure problems with Front Street include older water lines and meters, and

a lack of high-speed internet connectivity for the mill buildings. Two eight-inch water lines leading

to 150 Front Street were installed circa 1950, and although they were adequate when functioning

at their highest potential, the likelihood of narrowing owed to mineral calcification is high due to

the limited use they have received since the site ceased being used for heavy industry. The lines

will have to be tested and possibly cleared out, but are not likely in need of replacement. The water

meter at 150 Front Street is, however, in need of replacement. The meter is outdated and concern

over functional and safety issues with both proper flow and measurement led the Towns Deputy


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Director for Water, Jeffrey Auer, to determine that it will need substantial updating or replacement

if the site is improved.

Most significantly, the mill complex is impaired by its lack of high-speed internet

connectivity. Currently, high-speed internet is available along the north side of the railroad tracks

along Front Street, but does not cross over the rail lines into the mill properties. The only available

internet access to these properties is through Verizon, which offers inferior dial-up service, or

through a costly satellite connection to downtown Springfield. Comcast, the local cable company,

has the ability to provide high speed internet to the Front Street mills, but has not yet added this

connection. Their slow response to meeting the mills demand may be due in part to a limited

profit margin, but is also likely due to the need to cross either over or under the CSX rail lines to

the mill buildings. Recently, however, conduits running under the rail lines into the mill propertieshave been found by the Town and progress is being made to get Comcast to utilize these channels

and connect the properties to their high-speed services. This is important because the absence of

affordable and fast internet connection significantly limits the development opportunities for the

mill buildings and prohibits them from being competitive in the larger market. High-speed internet

access is absolute must for businesses, industries, and homeowners and renters.

Site access to Fibermark and 150 Front Street is currently restricted to one crossing over

the rail lines on Front Street for both the exit and entrance of vehicles. There are two other openings

on the eastern side of the Fibermark property which are blocked off with either large cement blocks

or a gate. The purpose of having the single access point is to prevent the public from cutting

through Fibermarks property and around to the main exit in order outpace an oncoming train and

avoid waiting for it to pass. However, more than one egress from the mill properties will be needed

for functionality and safety reasons if there is going to be any development at 150 Front Street.

In addition to egress issues, the organization of parking and driveways within the Mill

Properties is not effective. Improvements such as repaving and redesigning driveways are

necessary for any increased vehicle traffic to keep cars in appropriate designated areas and to keep

pedestrians safe. Parking will also need to be improved to accommodate any increased traffic to

150 Front Street because presently the only recognizable parking lot is located on Fibermarks


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property and is used by their employees. There is space on Fibermarks land to create more

parking, but less so on the land around 150 Front Street. Having ample parking is important for

any use that locates in 150 Front, and currently it does not exist.

Also problematic is that there is little concern over potential runoff into the Westfield River

from the parking lots and driveways around the mills. Environmental sensitivity and an attention

to sustainability are becoming increasingly important to developers, investors, and consumers

alike. Things such as design standards can encourage or even require sustainability, but even in

their absence, some traces of sustainability can be found in the Front Street area.For example, the

A&D Hydro Company uses hydropower to generate electricity and some nearby homes have

passive solar systems to supplement their electricity. Nonetheless, sustainability practices need to

be improved and increased to include more properties and more thorough measures. It is importantto remember that interwoven with the environmental side of sustainability are economic and social

facets, and when combined they foster successful, healthy communities.

2.5 Transportation

The Town of West Springfield is fortunate to be well located in terms of access to major

transportation routes and access to a diversity of transportation options. Interstates traveling in all

four directions have entrances and exits within the Town and other major routes also pass through

the Town, enabling the efficient and fast transportation of both goods and people in and out of its

borders. Unfortunately, the location of Front Street at the bottom of a hill and with sharp corners

and narrow roadways makes it difficult to access by large truck. Mr. McIntyre does have large box

trucks that come into the mill complex and maneuver around behind his building, but it is

reportedly very difficult for them to do so. A high volume and frequency of large trucks making

trips to and from Front Street might be cumbersome and potentially dangerous due to the

narrowness of the roads and sharp corners and bends leading to Front Street.

At present, regular automobile traffic is not currently an issue and these smaller vehicles

are able to maneuver the roadways safely. Traffic volume is low to moderate without any

congestion issues with the exception of when a train is blocking the road and/or entrance to the


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mill complex. The frequency with which this blockage happens is fairly regular due to the presence

of the CSX-owned rail yard about a mile east of Front Street. The train crossing is not a significant

issue if it is a moving train that is blocking passage for only a few minutes, but is more problematic

if it is a train that is being loaded and built up from the rail yard and causing extended delays. Not

only is a long, slow moving train frustrating for drivers, it can also be dangerous if emergency

vehicles cannot cross the train tracks to get into the mill complex. Currently there is no way for

emergency personnel to know if the entrance is blocked until they get to it, and whats more is that

there is no easy way to get around. The only other access point is to go around through Agawam.

Fortunately, the West Springfield Fire Chief, Mr. William Flaherty, does not feel that the

train crossing is a major issue or that it should be a detriment to future development of 150 Front

Street. He feels confident that his team can handle any emergencies in an appropriate and timelymanner regardless of a passing train. Regarding automobile traffic coming and leaving the mill

complex, opening up an additional access point by the bridge would allow drivers to exit and enter

heading from or towards Agawam and avoiding the train crossing altogether.

If people want to travel to and around Front Street by means other than a car, the options

are somewhat limited. There is no public transportation which comes directly into the

neighborhood, though there are bus stops up the hill on Route 20 and over the bridge in Agawam.

Also, bike lanes, bike paths, and consistent sidewalks are non-existent, and thus bike and

pedestrian activity is not naturally invited or encouraged. Walkability and recreational

opportunities are good for a community for many reasons including public health, environmental

friendliness, social interaction, and general attractiveness to businesses, consumers, and residents.

2.6 Environmental Factors

A number of environmental sensitivities, stemming from the location of Front Street along the

Westfield River and canal, need to be addressed. The biggest issues are the TownsFlood Hazard

Overlay District and the Commonwealths Rivers Protection and Endangered Species Acts. The

overlay district is concerning because it says in part that there can be no new fixed structures and

no substantial improvement of existing structures in areas designated as Zone AE. According to


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the latest FEMA map dated July 16, 2013, the project area is located in Zone D, which is defined

as an area in which flood hazards are undetermined, but are possible. There is a strong possibility

that the southern edge of Fibermarks property is located within a 100 Year Floodplain; however,

FEMA would need to be requested to survey and define the boundaries of the zone.

Some of the walkway leading from 150 Front Street to the dam owned by A&D Hydro

appears designated Zone AE, though the maps quality and scale prevent an accurate reading of the

boundary of the zones and a survey would be needed to accurately define the boundaries. The

restrictions of the overlay district may would require Notice of Intent (NOI) to be filed for any

large renovations, construction, or demolition of structures within the 100 Year Floodplain. For

smaller projects, a Request for Determination could be filed. The NOI would need to demonstrate

that the specific project has no practicable alternatives and will have no significant adverseimpacts. Once identified by the Conservation Commission as being partially or wholly located

within the 100 Year Floodplain, the Building Department is notified and sets building code

standards for any significant renovations or construction of new buildings. These standards may

include blow out windows, locating heating, electrical, and mechanical equipment above the

Floodplain elevation, and allowing the basements to purposefully flood.

The Commonwealths Rivers Protection Act also places burdens on the development of

the mills and walkway to the dam because they are located within the 200 foot zone on either side

of the Westfield River. Fibermark and 150 Front Street may be exempt from this Act, however, if

their properties are accepted as being part of an historic mill complex. Even if they are not

considered exempt, the Act does not restrict development outright, but a permit needs to be

acquired and proof of no reasonable development alternative or no adverse impact from

development is required.

The Endangered Species Act has very similar requirements in that it does not prohibit

development in Priority Habitat Areas outright, but any plans for development need to show that

they are not going to result in a take of a species or habitat. Priority Habitat Areas around Front

Street include the waters of the Westfield River, the canal, and the walkway leading to the dam.


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Section 3. Recommendations

The following recommendations incorporate the findings of the Inventory and Analysis sections

of this report, as well as the results of a public workshop held in the Town of West Springfield

with residents and other stakeholders (See Appendix A). Although the focus of the project is on

150 Front Street, the Town and the UMass Center for Economic Development recognize that a

successful revitalization plan needs to incorporate and consider the condition of the neighborhood

around the property as well. With that said, the recommendations are intended to be comprehensive

and address various issues uncovered throughout the study area. The UMass Center for Economic

Developments goal in making these recommendations is that they will help 150 Front Street, the

neighborhood, and the Town prosper and thrive together.

Recommendation 1: Modify zoning to encourage mixed-uses and redevelopment

The mills on Front Street have provided the neighborhood with an important and significant

industrial heritage and undoubtedly contributed to the decision to zone the area industrial.

However, the current zoning is not entirely representative of what the neighborhood is now and

what it is desired to be in the future. We recommend changing the zoning to be more progressive

and to encourage a variety of uses and development opportunities that are suitable for the area and

will contribute to its revitalization and long-term success. One of the ways this can be done is to

create a new zone which allows all uses and apply it to the study are. The zone would function so

that every use requires a special permit. This way, specific development plans can be screened by

the Planning Board and compared to a set of standards that relate to the desired development

outcome of the area.

If not an entirely new zone, we recommend that the Town at the very least modify the

Industrial zone to allow housing and mixed-use development and then adopt an overlay district

that will identify the development potential and goals for the project area. The overlay district is

an effective tool which can help developers identify the area as being a priority for the Town and

imply that the development process would be helped and promoted, not hindered. It is also

convenient in that it includes specific guidelines and requirements that can be applied over


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different zones without the need to tamper with the underlying zoning. We recommend including

specific standards that will steer development towards desired uses, will create a certain aesthetic

quality in the overall neighborhood, and will protect the environment. The overlay is a good way

to do this because it can be tailored to the project area and does not have to be feasible and

applicable for anywhere else. Standards regarding building setback, driveways, parking, signage,

lighting, and landscaping may be considered. It is important to keep in mind that the strictness and

specificity of the requirements in the overlay district should not be so burdensome that they

discourage investors and frustrate property owners. The district should be created with the purpose

of enhancing the underlying zoning, not get so caught up in minutiae that it takes on a life of its

own. Provided in Appendix B is an example of an overlay district from another Massachusetts

municipality: the City of Walthams Limited Commercial Revitalization Area Overlay District.

Recommendation 2: Open another entrance/exit

Safety and access concerns were high among workshop attendees who felt that the issue of

the train crossing was a major threat to the success of 150 Front Street. A train blocking the

entrance is both inconvenient and potentially dangerous in the event of an emergency. Fortunately,

crossing the train tracks to enter or exit the site will not be necessary if patrons, employees, tenants,

emergency vehicles, etc. are able to use one of the existing access points on the eastern border of

Fibermarks property. Currently, those twoaccess points are closed to the public by either a gate

or cement blocks to prevent drivers from cutting through the mill complex to outpace an oncoming

train. Our recommendation to solve that problem is to install traffic calming measures within the

mill complex which will discourage drivers from using it as a cut through. These measures might

include speed bumps, narrow and winding driveways, sharp corners, and tall curbing, all of which

make it difficult to speed and inconvenient to drive through.

Opening up one of the eastern entrances will require that Fibermark has an agreement with150 Front Street that visitors be allowed to drive through Fibermarks property. Additionally,

Fibermark and 150 Front Street need to come to an agreement on parking, which leads to our next

recommendation.


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business owners, etc. a place to get some fresh air and enjoy the environment. In comparison to

the quiet and mysterious feeling the mill complex gives people now, having people walking around

and being active in and around the mills will create a sense of liveliness and make the area seem

more inviting. Additionally, the riverwalk might serve as a way to connect the other recreation

opportunities in the neighborhood including walking trails, Mittineague Park, and the canoe

launch.

There are some concerns from property owners and the public about the safety of such a

walkway and vandalism and crime. To address this, we recommend that the walkway be open

during the daylight hours only and be closed off with a gate at dusk. We also agree with what some

workshop participants said about more people being present in the area and walking; it will

discourage vandalism and other nuisances because there will be more eyes and more exposure.Nonetheless, we recommend that the Town assume liability over the walkway and those who use

it. An example of a very similar project can be found in nearby Ludlow, Massachusetts. An old

mill complex in that town is being redeveloped with mixed uses and a riverwalk along the

Chicopee River. The town of Ludlow has assumed liability for the walkway (See Appendix C for

a more detailed case study).

Recommendation 5: Improve neighborhood walkability

It is important not to forget that an important part of making 150 Front Street more inviting

to the public is making the neighborhood around it more inviting as well. We recommend

improvements to the neighborhood which will improve walkability by making it more accessible,

safe, and attractive. Our first recommendation is that the Town invest in street-scaping and place-

making measures that will define the neighborhood and beautify it. Flowers, street trees, decorative

lamp posts, special signage, and public benches are all aesthetic details that can greatly improve

the experience of someone walking or driving through the area and make them want to return.Neighboring city Westfield, Massachusetts has implemented many of these features in its

downtown as part of a greater revitalization effort (See Appendix D for a more detailed case study).


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force can also allow stakeholders a chance to work together, organize their thoughts, and

communicate as a group before the Town, keeping the dialogue open between the public and Town

officials as things move forward.

Recommendation 8: Create a CSX task force

The public workshop also brought to light the need for more communication with CSX.

Not only does CSX maintain and operate the rail lines which run through the width of the Town,

it also owns and operates a large rail yard in the Town. However, as a railroad operator, CSX is

governed by federal laws, not state or municipal laws, and this can create some problems with

communication and collaboration between them and the Town. We recommend that West

Springfield establish a task force to improve the relationship between the Town and CSX so moreof a partnership might develop. This is important because many projects in the Town, including

150 Front Street, require some sort of cooperation with CSX. For example, sewer lines, water lines,

and cable lines all need to travel under the railroad tracks and technically pass through land

controlled by CSX, therefore requiring their approval. Which leads to our next recommendation.

Recommendation 9: Continue to pursue high-speed internet access

At the time of this writing, initial steps have been taken to identify a conduit through which

Comcast can pass their cables under the railroad tracks and connect Fibermark and 150 Front Street

to their television and high-speed internet services. It is preferable for all involved if the conduit

proves viable because then there will be no need to go through CSX to bring the cables across the

tracks via a new crossing. If working with CSX is necessary, it will likely slow down the process

and potentially make it more costly, judging by the previously mentioned lack of communication

between the Town and CSX. Regardless of whether the existing conduit is viable, we recommend

that the Town continue to leverage its authority and abilities to advocate for and propel this

Comcast project forward. The importance of high-speed internet to the redevelopment and viability

of 150 Front Street cannot be emphasized enough.


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Recommendation 10: A full legal analysis of easements on 150 Front Street, the canal, and

Fibermarks property

Although we have done our best to identify the easements within the mill complex, the

presence of the railroad tracks, the canal, and the long histories of 150 Front Street and Fibermarksproperty, there is a lack of absolute clarity regarding the easements and their legal implications.

As the project moves forward and any improvements are made the mill complex it will be

necessary to know where all the easements are and any rights, restrictions, or limitations that have

been placed on any portion of the properties. We recommend that the Town have a full legal

analysis of all the deeds for mill complex to ensure that everything is done in compliance with the

deeded rights and restrictions.

Recommendation 11: Pursue historic preservation

Historic preservation can have many benefits for an area that is in need of revitalization.

On a local level, identifying with a shared history can create a greater sense of community and

pride while encouraging stewardship. On a more regional scale, historic places and landmarks can

be marketed and serve as a catalyst for revitalization by generating curiosity and attracting visitors

to the area. For developers and property owners, formal listing on the National Register of Historic

Places opens properties up for state and federal tax incentives to help make redevelopment projects

more economically feasible.

Although there is often push-back and concern about stringent regulations, historic

preservation need not be burdensome for property owners and developers. We recommend that the

Town hire a consultant or specialist in historic preservation to update the pre-existing Mittineague

inventory of historic places and pursue listing 150 Front Street on the National Register of Historic

Places. The significance of being listed on the National Register is that it makes available the

opportunity to apply for state and federal historic preservation investment tax credits. There are no

regulations or restrictions regarding what can be done with the property for simply having it listed;

however, should any tax credits be accepted, some standards will be enforced to maintain the

historic integrity of the property. In addition to 150 Front Street, we also recommend that the Town


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and local property owners consider applying for the Mittineague neighborhood to be listed as an

historic district on the National Register. Once again, this does not place any rules or regulations

on the properties within the district, but it does raise awareness of the historic significance of the

Mittineague neighborhood.

Recommendation 12: Utilize sustainable redevelopment features wherever possible

Going green is a trendy term that often carries little weight and meaning in the real world

but it can be an important part of development and revitalization. The act of reusing mill buildings

is in it of itself green or sustainable because it is improvising with what already exists instead of

expanding into open space and undeveloped land. More can be done, however, and being

sustainable is increasingly important to consumers, property owners, businesses, and investors

because they are realizing the many benefits that come from it. Take a green roof, for example. It

is a roof that is covered in grass or vegetation that may or may not be accessible to people, and

which serves to help insulate the building and keep it cool by absorbing the suns rays in addition

to the natural process of absorbing carbon and releasing oxygen. Depending on the type of roof

and the style, a green roof can be a very low maintenance way to reduce energy consumption,

particularly fossil fuels, which in turn reduces the costs of heating and cooling the building.

Even if a green roof is not suitable for 150 Front Street, we recommend that as many

sustainable features be used in its renovation and redevelopment as possible. Insulated windows,

recycled wood, bricks, and other building materials, low-flow toilets and faucets, a designated

composting site, and other elements can be incorporated into the building to make it more cost and

energy efficient in the long run. And, if nothing else, being able to say that the building is

sustainable, or green, is a good marketing point.

Recommendation 13: Explore Funding Opportunities

We understand that all of our recommendations require a financial investment in order to

be put into action. It would be unrealistic to expect the Town and the property owners to come up


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on their own with all the funds needed to move the project forward. Ideally, most of our

recommendations can be partially or fully funded by a variety of state and federal grants monies

available to the Town and, property owners, and developers. Thus far we have mentioned a couple

example of these funding opportunities including the Community Development Block Grant

awarded to the Office of Community Development, and Historic Preservation Investment Tax

Credits which can be awarded to private owners or developers looking to reuse historic properties

for income-generation. We recommend that the Town explore these along with other sources to

acquire as much outside money as possible. Following this, we have included a list of several

funding opportunities that we feel can be applied to the project and which the Town and property

owners should consider pursuing.

3.2 Inventory of Potential Funding Resources

Economic Development Incentive Program (EDIP)

o EDIP is the states investment tax credit program for businesses. The Economic

Assistance Coordinating Council (EACC) certify projects within one of three

categories for expanding companies that generate substantial sales outside of

Massachusetts:

1. Certified Expansion Project: A full-time job creation and investment

project within an Economic Target Area, which includes a local taxexemption and approval by the municipality.

2. Enhanced Expansion Project: A project with exceptional employment

growth of at least 100 new full-time jobs, anywhere in Massachusetts.

3. Manufacturing Retention Project: A project within a Gateway

Municipality that either retains at least 50 full-time manufacturing jobs

and / or creates at least 25 new full-time manufacturing jobs. (Note: not

applicable to West Springfield)

*This grant could be applied for by the property owner/developer to help makerenovation and rehabilitation of the mill property more financially feasible. This grant

would apply if the mill is reused for commercial or light industrial purposes and creates

100 plus new full time jobs.


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industrial activity within the district. DIF provides financial benefits to developers by

providing infrastructure and surrounding amenities to support their projects. Early

public funding takes the initial burden off the developer and minimizes risk.

*The Town of West Springfield could apply for a DIF to help finance improvements to the

Front Street area. Improvements might include signage, street-scaping, crosswalk paintingor construction, new sidewalks, and other infrastructure and general aesthetic

improvements to the area. The Town would need to prove that these improvements will

lead to an increase in tax-revenue after their completion, and then the amount of those

additional future tax revenues can be used to help finance the projects. The increase in

revenue would be assumed to result from the area being more inviting to the public who

will then be more likely to patronize the local shops and businesses in the mill and along

Front Street.

Tax Increment Financing (TIF)

o TIF provides revenues for infrastructure improvements serving a defined municipal

district. Regulations require that projects provide economic opportunities, stimulate

development, broaden the tax base, and enhance economic vitality. TIF provides a

direct upfront benefit to a Developer in the form of tax relief. Developers utilizing

TIF benefits frequently access other state financial incentives. A TIF Zone must be

in an area approved by the EACC as an Economic Opportunity Area (EOA) or found

to be an area "presenting exceptional opportunities for economic development" by

the Director of Economic Development. Projects must meet three of five criteria:

Extraordinary Debt, Affordable Housing, Brownfield Redevelopment, Business

Development, and Transportation Enhancements.

*Similar to DIF, the Tax Increment Financing district operates on the assumption of future

tax revenues and uses these additional revenues to help make development projects more

feasible. The difference with a TIF is that the financial benefits go directly to the developer,

not the municipality. In the case of the TIF, the developer is given a break on their property

taxes over a period of time, in an amount comparable to the additional revenue they will

be generating for the city and the state by way of their development project. This is

something that the owner/developer of 150 Front Street could apply for, potentially under

the criteria of either affordable housing or business development.

National Historic Preservation Tax Incentive Program

o The Federal Historic Tax Incentive Program is administered by the U.S. Department

of the Interior and the Department of the Treasury. The National Park Service (NPS)

and State Historic Preservation Offices act on behalf of these federal departments


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during the review of program applications. Proposed projects are eligible for a

federal income tax credit that equals 20% of the amount spent for rehabilitation of

certified historic structures and a 10% credit for non-historic buildings built before

1936.

o Certified historic structures must be individually listed on the National Register of

Historic Places or a building located within a registered historic district that

contributes to the significance of the district in order to be eligible for the 20% credit.

o The National Park Service must approve all rehabilitation projects to ensure

consistency with local historic character. It is assumed that some alterations of the

historic structure are required for efficiency and building code regulations but

rehabilitation must not damage, destroy, or cover materials/features (interior and

exterior) that help to define the historic character of the structure.

o

The program application process includes 3 distinct phases: Part 1 (Buildings not on National Register only)A request

for preliminary determination of historic significance from the

National Park Service

Part 2An application describing the proposed rehabilitation.

The State Historic Preservation Office is required to provide

technical assistance during this phase.

Part 3Submitted following all rehabilitation work in order to

evaluate if the completed work aligns with the accepted Part 2

proposal.

o Application fees are required for Parts 2 and 3. These fees are determined by the

overall cost of the proposed rehabilitation. Qualified rehabilitation expenditures

include costs of work on the historic building, as well as architectural and engineering

fees, site survey fees, legal expenses, development fees, and construction costs.

o Only completed rehabilitation is eligible for the 20% credit and building owners must

hold the building for at least five full years after rehabilitation in order to recapture

100% of the tax credit. Tax credits are claimed on IRS form 3468 for the tax year in

which the rehabilitation project is placed into service. Phased rehabilitation is alsoeligible for tax credits but must be accompanied by completed plans for proposed

phases.

*As listed under the recommendations, the owner of 150 Front Street should apply for

individual listing on the National Register of Historic Places, or apply to prove that it is a


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contributing property to an historic district should the Town pursue a larger Mittineague

Historic District. In either of these cases, the property would then be eligible for federal

and state historic tax credits if it is redeveloped for income-generating purposes. It would

be the responsibility of the property owner to apply for these tax-credits, but the process

of listing on the Register of applying for the grants should be assisted by a consultant or

someone otherwise familiar with the Massachusetts Historic Commission and the

National Park Service.

MassHousing Loans

o MassHousing is the State of Massachusetts affordable housing bank. MassHousing

sells bonds to real estate developers who agree to build apartments where at least

20% of the total units built are affordable to lower-income residents. MassHousing

also refinances loans to owners of existing apartment communities who agree to keep

their units affordable for a long period of time. MassHousing also provides 30-yearfixed rate loans by contracting with more than 150 local lenders in Commonwealth.

Once a borrower is approved for a MassHousing loan, MassHousing then purchases

that loan form the lender and the borrower will make payments to MassHousing.

*This is a loan that can be pursued by the property owner and/or developer of 150 Front

Street should they choose to create housing and then agree to make at least 20% of that

housing affordable. This is helpful because the interest rates would be lower than those

acquired through other lenders.

Low-Income Housing Tax Credits (LIHTC)

o The Low Income Housing Tax Credit Program (LIHTC) is a national program that is

administered by the Federal Department of Housing and Urban Development and

distributed in Massachusetts by the Department of Housing and Community

Development. This program is intended to provide private market incentive to invest

in affordable rental housing. Federal housing tax credits are awarded to developers

of qualified projects. Developers then sell these credits to investors to raise capital

(or equity) for their projects, which reduces the debt that the developer would

otherwise have to borrow. Because the debt is lower, a tax credit property can in turn

offer lower, more affordable rents. Eligible affordable housing projects include the

acquisition of property, new construction, and rehabilitation of existing rental

housing. Both for profit a non-profit developers are eligible for LIHTC. Projects

seeking tax credits must have a minimum of 8 affordable units with at least a 30-year

term of affordability.


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o All units receiving tax credit assistance must have 20% or more of households

earning no more than 50% of area median household income ($27,217 in West

Springfield) or 40% of households earning no more than 60% of area median

household income ($32,660 in West Springfield). In addition, 10% of all units must

be reserved for persons or families earning less than 30% of area income ($16,330 in

West Springfield).

o The maximum tax credit award for new assisted living projects is $500,000 and the

maximum for all other projects is $1,000,000. LIHTC funding is made available

twice a year through a DHCD notice of funding availability that is made public twice

a year. Project applicants must submit a One Stop Housing Application in order to be

considered for funding awards.

o One Stop Housing Applications are competitive and reviewed based on a clear

DHCD Criteria:

Strength of overall project concept and development team

Demonstrated need for project in the target neighborhood Financial viability of project

Degree of local support (including funding commitments)

Evidence of readiness to proceed

Evidence of successful progress on area projects previously funded by

DHCD

Incorporation of sustainable development

*Similar to MassHousing loans, the Low Income Housing Tax Credit Program

(LIHTC) is available to developers who agree to make a portion of their housing

units affordable to low income residents. However, instead of a loan, the LIHTCprogram reduces the developers financial burden in the form of tax relief. This

program should be considered by the developer of 150 Front Street if they decide

to include housing in their plan.

Renewable Energy Trust Fund

o The Massachusetts Clean Energy Center administers funds for the improvements to

hydropower turbines and the installation of photovoltaic panels. Additionally,

Massachusetts law provides that solar-energy systems and wind-energy systems usedas a primary or auxiliary power system for the purpose of heating or otherwise

supplying the energy needs of taxable property are exempt from local property tax

for a 20-year period. Hydropower facilities are also exempt from local property tax

for a 20-year period if a system owner enters into an agreement with the city or town

to make a payment (in lieu of taxes) of at least 5% of its gross income in the preceding


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calendar year. This incentive applies only to the value added to a property by an

eligible system, according to the Massachusetts Department of Energy Resources

(DER). It does not constitute an exemption for the full amount of the property tax

bill.

*A&D Hydro, the operator of the hydro-electric turbines at 150 Front Street, is a candidatefor this incentive if it is not already receiving these benefits for its hydropower generation

from the Westfield River. The owner/developer of the 150 Front Street mill property may

also be eligible if they chose to improve the projects sustainability by adding photovoltaic

panels to generate solar-power and offset the need for fossil fuels. They may be able to

receive assistance in the form of funds to install the solar panels, and also then receive an

amount of property tax exemption relative the value added to the property by the solar

panels.

Chapter 43 D: Expedited Permitting (Already in progress by the Town of West Springfield)

o Enables privately or publicly owned property that is:1. Commercially or industrially zoned

2. Eligible for the development/redevelopment of a building at least 50,000 squarefeet of gross floor area

3. Subsequently approved by the state Interagency Permitting Board to bedesignated a Priority Development Sites. Expedited permitting will guarantee thata decision on a permit application is granted within 90 days of the applicationbeing deemed complete.

Community Development Block Grant Program(Already in place in the Town of West Springfield)

o Massachusetts Community Development Block Grant Program (CDBG) is a

federally funded, competitive grant program designed to help small cities and towns

meet a broad range of community development needs. Assistance is provided to

qualifying cities and towns for housing, community, and economic development

projects that assist low and moderate-income residents, or by revitalizing areas of

slum or blight. Municipalities with a population of under 50,000 that do not receive

CDBG funds directly from the federal Department of Housing and UrbanDevelopment (HUD) are eligible for CDBG funding from the state Department of

Housing and Community Development. Communities may apply on behalf of a

specific developer or property owner. Eligible CDBG projects include but are not

limited to housing rehabilitation or development, micro-enterprise or other business

assistance, infrastructure, community/public facilities, public social services,


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planning, removal of architectural barriers to allow access by persons with

disabilities, and downtown or area revitalization.

Land and Water Conservation Fund (LWCF)

o The LWCF is a federal program through the National Park Service which provides

matching grants to states and local governments for the acquisition and

development of public outdoor recreation areas and facilities. The program is

intended to create and maintain a nationwide legacy of high quality recreation areas

and facilities and to stimulate non-federal investments in the protection and

maintenance of recreation resources across the United States. Grant monies are

allocated to each state who then accepts applications and selects the projects which

best represent the states recreational plan and priorities.

*We recommend that the Town pursue this funding opportunity to help offset the cost of

acquiring and developing the recommended riverwalk. As stated above, the Town will haveto prove that the riverwalk meets the Commonwealths recreation priorities; in other words,

these grants are competitive and should be pursued aggressively and strategically.


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Section 4. Action Steps for Moving Forward

In summary, we recommend that the Town of West Springfield take the following action steps to

move forward with the 150 Front Street Project:

1. Adapt the language of the existing Industrial Zone to allow for residential and mixed uses

by special permit. Encourage desired uses and development styles through the use of an

overlay district which can encompass and target not only the mill complex, but the entire

neighborhood.

2. Reopen for use the blockaded entrance on the northeastern edge of Fibermarks property.

This additional entrance and egress will make the mill complex safer, more accessible, and

more convenient during the times when a train is blocking the main entrance on the north

side of the mill complex. Install traffic calming measures to prevent drivers from using the

mill complex as a cut-through.

3. Improve parking and driveways through efficient and environmentally friendly design that

limits runoff and beautifies the area. Create additional parking for 150 Front Street by

knocking down the stock house in front of Fibermarks main building and using the land

for parking. Facilitate an agreement between Fibermark and Mr. McIntyre, the owner of

150 Front Street, regarding the cost and use of the new parking.

4. Create a riverwalk along the Westfield River behind the mill complex that encourages

visitors, employees, business owners, and local residents to enjoy the scenic views of the

river. Use this unique recreation opportunity as a wow-factor to attract people to the site.

5. Enhance the overall neighborhood by making it more walkable in terms of safety and

aesthetic improvements. Accessible and consistent sidewalks are needed to encourage

pedestrian activity as well as crosswalks at intersections. Use street-scaping techniques

including street trees, decorative lamps, and human scale design to make the neighborhood

more attractive and memorable.

6. Aid in the creation of a neighborhood task force that allows the various Front Street project

stakeholders to communicate and collaborate regularly and in an organized fashion. This

will help to minimize conflicts of interest and increase understanding within the project

area and can be used as a platform to keep dialogue open with Town officials.


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7. Create a CSX task force with the goal of improving communication and partnership with

the Town and CSX. The Front Street project along with likely other future plans will

require some cooperation between the Railroad Company and West Springfield officials.

8. Keep Comcast on target with connecting the mill buildings to their high-speed internet and

cable service. Ensure that this moves forward and that any problems are resolved swiftly.

9. Obtain a full legal analysis of all easements on the land within the mill complex and canal

area. Have a clear understanding of ownership, rights, restrictions and other issues

associated with the easements so that as the project moves forward there is no confusion

or disputes over the land.

10.Pursue historic preservation as a means to open up funding opportunities and generate

awareness and stewardship of the historic character of the Mittineague neighborhood. Hire

a consultant or specialist that can assist in having 150 Front Street listed on the National

Register of Historic Places so that developers can take advantage of Historic Preservation

Investment Tax Credits. A Mittineague Historic District listed on the National Register

umass ced report on 150 front st

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