Commission approves site plan application for historic axe factory site
- jfitts0
- Oct 17, 2024
- 15 min read
Updated: Oct 27, 2024
Posted Oct. 17, updated Oct. 18.
By John Fitts
Staff Writer
By John Fitts
Staff Writer
CANTON – The Planning and Zoning on Oct. 16 unanimously approved a site plan for the historic Collins Company complex.
Lisa and Merritt Tilney, principals at Collinsville Redevelopment Company and daughters of complex owner “Rusty” Tilney are looking to remediate the site, update its infrastructure, raze some dilapidated structures, renovate some 20 buildings, and construct three new structures in a mixed-use plan that includes uses such as light industrial, retail, office and as many as 290 housing units.
The 19.3-acre complex, from 1826 to 1966, was home to world renowned edge tool manufacturer, the Collins Co. Today some 50 businesses – ranging from artisans to light industrial manufacturers – operate on the site but much of the infrastructure is rapidly aging and revitalization has been a long-time goal of many in town, but it’s not an easy task by any measure.
Before any renovation or new construction can happen, the owners must work on removing contaminated soils, updating utilities, adding parking, improving infrastructure, and repairing the site’s waterways.
“Redevelopment of the site is a complex, expensive and time intense task,” the application narrative states. “Collinsville Redevelopment Company, LLC (CRC) obtained a purchase option with the intent of renovating many of the buildings on site and the construction of three new structures, producing a mixed-use retail, office, light industrial and residential project, envisioned by the IH-1 (Industrial Heritage) regulations. Due to the complexity of renovating historic industrial waterways (waterworks) as well as buildings on the Historic Register, installing entirely new utility systems, remediating contaminated soil, and building materials, creating new roads, drives, parking, site lighting, stormwater control systems, the project development is expected to take a number of years. Project finance, pollution remediation, foundational waterworks stabilization, utility infrastructure and road installation have priority. Adding to the complexity is the desire to retain existing tenants, while the grounds and buildings are being renovated.”
Separately, CRC has also applied for a Dam Safety Permit with the state Department of Energy and Environmental Protection to rehabilitate the manmade waterworks on site. The waterways are fed through a gate-controlled forebay dam along the Farmington River and the system once provided waterpower to run machinery at the site, fist mechanically and later through hydropower.
“They’re an important historical narrative for how the Collins Company used hydropower to fuel the factory,” Lisa Tilney said at the Oct. 16 hearing.
Environmental Remediation is another big factor in the project and one of the first steps that would happen in development, a years-long process. According to the application, an estimated approximately 10,000 cubic yards of contaminated soils will need to be moved. That is based on a GZA Environmental report that estimated the cost of cleaning up include lead, arsenic, Total Petroleum Hydrocarbons (TPH) and Polycyclic Aromatic Hydrocarbons (PAHs) on site in the range of $2.2 and $3.4 million
Overall, the project anticipates 16,154 cubic yards of total general cut and 17,8000 cubic yards of general fill needed for the site overall.
The site plan
Collinsville Redevelopment Company’s master plan envisions commercial uses on the western portion of the 19.3-acre property in a “seamless” transition from the Main Street area, light industrial uses near the middle of the property and residential use east of the Farmington River Trail further away from the downtown area.
The plan proposed sidewalks connecting all buildings to Main Street, as well as a pedestrian walking system to a new park area, in the southeast corner of the complex.
According to the application, CRC plans to preserve 20 existing buildings – representing 142,698 square feet of space for uses such as retail, lighting industrial, office, residential and more. New buildings would be residential. In all the proposal as conceived is for 290 housing units, 30,305 square feet of office, 25,000 square feet of light industrial, 45,000 square feet of retail and 5,612 square feet of “other permitted uses.” The development team initially plans to offer some affordable units, an idea that will be further flushed out once there is a better understanding of requirements for potential grants. A few buildings would be removed under the plan, including sheds on site, some to the rear of the property and one in the middle that would prohibit safe roadway widths. New building footprints are included but design would come later – a point addressed further in the story.
A pedestrian area with 35 bike racks is proposed near the Perry, Blacksmith, Axe Forge, Holyoke, and Boiler buildings to the west of the Farmington River Trail bridge, roughly in the “middle” of the site as it is utilized today.
Other pedestrian areas are also proposed as is a butterfly garden on the north side of the complex but the application notes that the company may seek design ideas and a grant based on a suggestion for open space/town green in that area.
A total of 530 parking spaces are proposed and that includes parking under new residential structures as well as spaces throughout. There is no parking garage in this plan. The project plans show proposed details for lighting, plantings, parking, grading, site utility development, stormwater management and more.
A traffic report from Hesketh estimates that, based on currently anticipated uses, a fully developed site – which would be years away - would generate an estimated 5,719 daily trips during the week, with 280 during the morning peak hour and 495 during the afternoon peak hour. Saturday daily trips are estimated at 5,398 for a fully developed site.
The plan retains the current site driveway remain in use and the rerouting and clearing of the overgrown Spring Street entrance be gated and used for residents only. (See below for more details).
The presentation
At a public hearing Oct. 16, the commission heard from both Tilney sisters.
Merritt Tilney noted how her dad has owned the site since 2002 and that the sisters became involved in 2023, right about the time the town condemned some buildings on site, resulting in the demolition of 30,000 square feet of sheds. The historic 1846 granite building was initially condemned but the town and the owners came to an agreement to allow CRC to shore it up. That building is envisioned as condominium use.
“As we became involved we really began to more fully understand the nature of this site and it’s both unique assets and the challenges,” said Merritt Tilney, who also described the site’s “amazing historical buildings,” surrounded by a vibrant ecosystem and village. “The time was right for us to get involved and we're eager to give back to the community we grew up and see our father’s legacy come to fruition,” she said.
“Collinsville is already completely amazing,” Lisa Tilney added. “There’s this idiosyncratic, kind of organic growth over 140 years – the factory - and you can’t build that from scratch. So, I think Merritt and I feel that one of our primary goals is to preserve and enhance what’s already extraordinary on site.”
Lisa Tilney also noted the potential economic growth, the existing community, plans to add stairs and a ramping system to connect to Main Street and the Farmington River Trail and bring people into the site and to the Farmington River.
She also noted a grant application that CRC hopes will help the company keep renovation and building as carbon neutral as possible.
Landscape Architect Phil Doyle of Simsbury-based Landscape Architectural Design Associates spoke to the commission at length, reviewing numerous details about the site layout, potential uses, erosion control, stormwater management, utility upgrades, parking, lighting, remediation, traffic flow, sidewalks, public spaces, removal of invasive plantings, and other details.
As expected, the site plan did not include architectural renderings, but, prior to seeking building permits, the development team would need to come back before the commission with those details, potentially in phases. The reason is the team is working with the state Historic Preservation Office on plans for the historic buildings and new construction has not yet been designed. “The footprints of the new buildings are shown, their height and residential layout will be determined when architectural plans are completed,” the application states.
However, Doyle has emphasized that it’s important that the project move forward as buildings and infrastructure at the site are rapidly aging.
Doyle also noted that FEMA is updating its floodplain mapping and that the team would be coming back to the commission with a site plan amendment when the new maps are adopted.
At the end of his presentation, Doyle noted his belief that the plans fall within the guidelines of the IH-1 zone, which covers proposed uses, densities and more and noted that the decision of the commission was largely "Administerial"
“We believe that the application that we have made is entirely consistent, just completely consistent with every one of the zoning regulations, whether it’s standard zoning regulations …. and with the specific IH-1 regulations,” Doyle said. “Our uses, our traffic study, everything, we believe, is completely consistent with what is required in the regulations.”
Public input
Many members of the public spoke at the hearing or wrote to the commission.
At the hearing, Collinsville resident Wayne Goeben made a few suggestions for the project but praised the plan overall.
“Having lived in the shadow of the factory for over 30 years we’ve seen these opportunities come, we’ve seen them go and I believe this is the right time and the right opportunity,” Goeben said.
“I fully support this I think that Lisa and Merritt are carrying through with integrity paying attention to the earth,” said Anneliese Hurlock who lives in the village and runs a studio in the complex. “They’re doing things the right way and I feel like this is a really great opportunity.”
The Canton Advocates for Responsible Expansion offered some suggestions, such as the idea of reducing the number of units if financially feasible and routing truck traffic from Maple Avenue but praised the project overall.
A letter from C.A.R.E. president Jane Latus, read by Theresa Barger, stated in part, “We are Canton Advocates for Responsible Expansion. In our view the Tilney sisters plan is a model example of responsible expansion. The plan conforms with several years of town Plans of Conservation and Development and reflects residents’ interests in keeping Collinsville quirky. Canton residents view protecting the town’s greatest natural resource, the Farmington River as a top priority. To retain the scenic and historic views of our river amid new construction please require that the applicant keep as large a natural buffer and setback as possible provide appropriate and vegetated treatment for the numerous springs in the area and reduce the potential for non-point source polluted runoff into the river. We appreciate your careful review of this plan and hope you’ll consider the design’s details and preservation of the historic property in the midst of a residential area.”
In a letter to the commission, Matthew T. Dingee, chairman of the Economic Development Agency, noted the groups support for the project, writing in part:
“Redeveloping the Collins Factory complex has been the cornerstone of every Plan for Conservation and Development since the factory closed its doors in 1966. Multiple generations of town leaders have seen the potential for this property to spark an economic, cultural, and social renewal in Canton. This vision has spawned a number of initiatives to remove barriers to development of the Collins Factory. These include creation of the Industrial Heritage Zone, reduction in sewer connection fees and state grants to study the extent of pollution and effective methods to remediate contaminants on the site.
“Even with these measures, substantial challenges have faced every prospective developer of this property. For years, the owner has entertained development proposals only to see them wither in the face of financial, environmental, and regulatory concerns.
The application before the Commission addresses these challenges in rigorous detail. It builds on the State of Connecticut’s investment in research into remediation, historic preservation, and traffic impact. It recognizes that redevelopment will be a multi-stage process, requiring thorough rehabilitation of infrastructure before anything further can be done.”
At the meeting, several residents of Spring Street and New Road addressed the commission. The rear of the site includes an access to Spring Street, currently overgrown and gated.
While some of those speakers praised the project in general terms, they raised concerns about the visual impact of the new buildings, the number of housing units and particularly the expected traffic.
Many were dismayed that a proposal for a gated access for residents only at the Spring entrance had been removed from the plan a few days earlier, due to some concerns with the language of the zoning regulations. Those residents felt the traffic would be too much, even with that limit and even worse without it.
“While there are many things we like about this proposal we would like to see Spring Street restricted. I was surprised to hear tonight that is going to be open, not just to residents. That’s going to be a big surprise to the entire Spring Street residents,” said Spring Street resident Leesa Lawson.
Lawson and her husband Joseph Hoke also wrote to the commission. They were also part of a letter from more than 20 residents who live in the vicinity that requested the following:
“Relocate new residential buildings further from the residential village end of the property. This ensures more open space on the eastern part of the property.
“If buildings remain in the current proposed location, limit buildings to 3 stories. This will minimize visual impact on the neighborhood. Also, reducing the height or bulk of buildings would be more consistent with current heights in the Industrial Heritage Zone and would reduce the number of new residents and cars. Proposed residential buildings would more than double the current population of the village, and the current traffic study results suggest significantly more car traffic on narrow roads in the village now heavily used by pedestrians and bicyclists.
“Explore options for egress from the property other than onto Spring Street, a narrow street with no shoulder and limited pedestrian walkways. Traffic exiting here will spread throughout the village or continue onto New Rd., another narrow and winding road with no shoulder and no pedestrian walkways. Traffic entering Spring St. during rush hours could result in traffic congestion along the street as cars wait for access through the carded gate. Consider Spring Street for emergency exit only or egress only.
“Mitigate noise and light pollution from residential and commercial buildings. (The Tilneys have reassured us that they are taking this into consideration and that town regs require light not to spill over past the boundaries of the property.) We understand that the large trees providing a visual barrier from Spring St. will remain.
“Please keep the public hearing open so that people who can’t attend the meeting or don’t have virtual access can write letters to the PZC.”
Many speakers at the meeting expanded on those themes.
“I think you did a great job describing the wonders of the butterfly garden, the stone walls, but you spent very little time on the traffic and the fact that New Road is going to have a large portion of those 2,000 cars coming through,” said Cynthia Kozak Buckley.
“Like many of you all we love Collinsville because of the small-town historic charm, walkable village feel, surrounded by hills and the beautiful Farmington River and dark skies,” said Katie Bradley of New Road. “While we support the proposed application to redevelop the axe factory site, we do have some concerns and wishes. Our biggest concerns center around the 300 proposed residential units. We believe that the sheer number of units and the heights of the buildings will have a negative impact on our community.
“We have seen the traffic study – for the overall project over 5,700 trips per day through the community. On Spring Street alone, it would be 2,000 [trips] a day coming and going entering and exiting on Spring Street. These cars would not only back up on Spring Street but then on to the Terrace, Center Street, New Road, and many other roads. We’re wondering if it would be possible for the town to do their own traffic study to look at the implications of the volume of cars and traffic.”
“It seems to be a unanimous consensus that the amount of vehicle trips in the traffic report seem to be overwhelming and I just would ask the town what plan, if any, do you have to improve the surrounding infrastructure to support this project?” resident Matthew Seymour said. “And has any thought been given to work with DEEP to request an easement to build a walkable path along New Road because it’s already a struggle to walk down New Road with the current traffic and to add potentially up to 2,200 cars a day it would be unbearable.”
When responding to the concerns of residents, Doyle said the team actually does prefer the gated access on Spring Street.
“We still think it’s a good idea to gate Spring Street. So, we would not object to an approval that came with a requirement to gate Spring Street and have it be used, as we originally proposed, by the residents of the property,” he said.
Doyle also pushed back on the idea that 2,022 trips a day were expected in and out of the Spring Street access. He said the chart in the traffic study showed that number of trips for multi-family use – if fully developed at near 300 units - but not specifically that access point.
“What that table shows is the projection on a daily basis from the multi-family housing over all the driveways, 2,000 cars,” Doyle said. “Those 2,000 cars are not on Spring Street.”
When a resident tried to object to that point, Doyle noted the commission was not a forum for a back-and-forth discussion on the issue, a rule the commission does enforce.
“The town has already determined that these roads are capable of handling the traffic. That’s part of the site plan approval and we’re not going to go beyond that” Doyle said.
Ultimately, the commission, in its approval, included a condition that the Spring Street entrance indeed be gated and for residents only – subject to the Office of the State Traffic Commission.
The latter is an important point, because while it would be done with input from the commission and the police chief, the Office of the State Traffic Commission will make the final call on such details.
During the hearing, Neil Pade, the town’s director of Planning and Community Development, addressed the larger issue of pedestrian and cycling safety in the area. While he said it wasn’t related to the application, he noted the town’s receipt earlier this year of a $200,000 grant award from the Federal Safe Streets For All funding program for a Complete Streets, Vision Zero, and Comprehensive Safety Action Plan.
“We would absolutely have the consultant look at this area,” Pade said.
Prior to the approval, the applicant team also answered some other questions that came up during the public comment section of the hearing.
Responding to another concern about truck traffic, particularly with construction vehicles on Maple Avenue, Doyle did say the while it’s tough to enforce, the development team could write that prohibition in their contracts.
Lisa Tilney addressed the requests for fewer units. She said they are certainly open to the idea if it’s financially feasible.
“We’re trying to get an approval for the maximum amount. … if we need that to make actually doing the rest of the project feasible,” she said. “Renovating these buildings is not going to be inexpensive and no amount of rent from this market is going to pay for that. So, it’s a balancing act and we are temperamentally open to reducing the amount of units, but we just don’t know the answer to that.”
Lisa Tilney also addressed the question of potentially bringing in other developers or selling some buildings at the site.
“If we could keep control of the entire site we absolutely would,” she said. “This place means so much to us … I’m an architect and these buildings have their absolute hooks in my soul. To the extent that we keep control, I don’t want to see ugly buildings go up and ruin this place. … Even if we did partner with somebody for the new buildings or even potentially sell, I would insist on a design easement to insist that the standards and the design [remain intact]. To the extent possible we want to keep it under our control, and we do not have any intention to just sell this to someone the minute we get approvals.”
Some time was also spent on lighting, which would be a mix of styles, including some transition pieces similar to what is on Main Street today – although Doyle made it clear he does not like that fixture. Responding to some resident concerns, he did say it is all down facing and should not affect migratory birds. The team also agreed to a condition to work with Pade on the possibility of automatic dimming, timers, and other technology to further conserve energy and reduce impact.
On the energy front, Lisa Tilney also noted that the assessment grant the company is seeking includes plans to work with a sustainability consultant.
CRC is working with the town of Canton in hopes of securing that $200,000 state Department of Economic and Community Development Brownfield Grant for, according to town documents, “further analysis of existing brownfield conditions to get a final remedial action plan and more accurate costing for remediation, geotechnical borings, and advisory MEP work to start considering new energy efficient systems for the existing buildings.”
To a question about hydropower at the meeting, Lisa Tilney noted that the company is not looking to compete with Canton hydro but noted that “micro-hydro” to power specific buildings would be one idea they hope to implement.
More work to be done
The unanimous site plan approval, which came with several conditions – some standard, some project specific, is a huge step in the project, and earlier this year the team received a permit from the town’s Inland Wetlands and Watercourses Agency for work in the Upland Review area – within 100 feet of a wetland or watercourse.
However, many permits such as the OSTA permit, dam safety permit and several others are still required, as is much groundwork for potential private and public financing, the latter of which often comes with very specific requirements and processes.
Still, the development team was elated with the approval and Lisa Tilney and Merritt Tilney released this statement the following day:
“We are buoyed by last night’s unanimous vote by the Canton Planning & Zoning Commission that our site work plans conform with the town’s land use regulations. We are grateful for the work of the Commission and for the support expressed by the individuals and organizations who testified at the hearing. Collinsville is a special place, we care about the historic character of the factory, we care about our tenants and neighbors, and we are eager to work with them all as we move forward with this complex project.”
“The revitalization of this property has been long awaited here in Canton, and this is another important step in what will be a long process and ongoing local and state review.”
