Company looking to revitalize axe factory complex applies for state dam safety permit, readies for site plan submittal

An overview of the forebay dam and waterworks system as included in the dam safety permit application.

Posted Aug. 16, Updated Aug. 26, Aug. 29

By John Fitts

Staff Writer

Collinsville Redevelopment Company (CRC) is pursuing additional permits needed for planned rehabilitation of the historic axe factory complex in Collinsville. Following a June permit application approval by the town’s Inland Wetlands and Watercourses Agency, the company recently applied for a dam safety permit from the state Department of Energy and Environmental Protection. The permit would allow the company to make repairs to the manmade waterways that flow through the site.

Additionally, the company is moving forward on several other fronts, having, in recent weeks, informally discussed facets of the plan with town commissions and agencies, including the Planning and Zoning Commission. Additionally, the company is working with the town in hopes of securing a state grant to further refine environmental cleanup estimates.

Abbreviated site background

The 19.3-acre complex, from 1826 to 1966, was home to The Collins Co., a world-famous manufacturer of edge tools. Today approximately 50 diverse businesses operate from the site. However, some buildings at the complex have been lost in recent years, others are unoccupied, and infrastructure is rapidly aging. Many feel the complex is vital to Canton’s past, present and future but there’s no shortage of opinions on how redevelopment should be done.

Collinsville Redevelopment Company principals, Lisa and Merritt Tilney, daughters of complex owner “Rusty” Tilney, are looking to remediate the site, update its infrastructure, renovate some 155,000 square feet of existing buildings, repair 2,000 feet of man-made waterworks, construct three new residential buildings and convert the granite building into housing.

The current effort began approximately two years ago and shortly into the process the town condemned several buildings on the rear portion of the property.

Subsequently, nearly 30,000 square feet of buildings directly behind the iconic Granite building were demolished. The granite building itself was cited but the company obtained an opinion from a structural engineer and agreed to fortify some exposed areas, to which the town agreed. Still, demolition was a stark for many.

“That brought to the fore, in all of our minds, the condition of the property,” Phil Doyle of Simsbury based Landscape Architectural Design Associates said at an Aug. 21, 2024, Canton Planning and Zoning Commission meeting.

The involvement of CRC came after several false starts at redevelopment. In recent years those involved parties who were looking to secure approvals and then purchase the property. In 2021, New York developer Sheldon Stein successfully applied for some changes in the Industrial Heritage 1 (IH1) Zone that governs the property. Those changes were the subject of a court appeal of the Planning and Zoning decision by a nearby property owner. While the town won that appeal, Stein had already dropped out of the project for health reasons.

Some of the issues from the appeal are irrelevant in the current plan, according to Doyle. For example, Stein had looked to build a parking garage close to abutting neighborhood, a detail that is not in the current plans.

Like many before it, Collinsville Redevelopment Company’s draft master plan includes mixed-uses but envisions commercial and light industrial uses on the western portion of the property in a more “seamless” transition from the Main Street area and residential use east of the Farmington River Trail further away from the downtown area. (Stein’s informal plans had included residential uses for buildings closer to Main Street).

Green spaces, rain gardens, pedestrian access and other features are also planned in the CRC’s concepts.

CRC also has an option on the property and its principals have said the project is a very personal one.

Rehabilitation of buildings and any new structures would be years away, however.

As noted in the dam safety permit, much of it prepared by Haley Ward, “The applicants intend to undertake major upgrades and renovations to the historic Collins Company facility in the Collinsville section of Canton. The project will ultimately have approximately 300 dwelling units, 84,000 SF of commercial space, 28,000 SF of industrial space, and associated parking. Work includes remediation of contaminated soil, extensive removal of invasive species, removal of some buildings, and construction of new buildings. Infrastructure work will include new parking, new driveways, repairs to bridges, new sanitary sewer, significant improvements to storm sewer, and new water service.”

Dam safety permit

Of course, much of the project preparation happens behind the scenes and following months of work and at least two meetings with the state Department of Energy and Environmental Projection, CRC recently applied for a dam safety permit, one of several more approvals needed for the project.

“We are pleased to have made a submission to CT DEEP for a dam safety permit and look forward to any comments and suggestions they have for the planned improvements,” said Lisa Tilney. “We are eager to get started on these important repairs to the watercourses that run through the site.”

At the northwest end of the site near Bridge Street, the Upper Collinsville Dam on the Farmington River is currently set up to direct a “small portion” of water into the .94-acre pond created by the Collins Co. Forebay Dam, once used to direct water into the factory site to power its operations.

“Historically, a system of gates and penstocks directed water through the site to operate turbines,” before sending water back to the river, the application notes, also stating that stone masonry was largely used to construct the dam components, while later repairs and alterations included use of concrete, concrete block and brick. Most of the gates are nonfunctioning and walls are often structurally compromised and covered with vegetation, the application notes.

 “We all know that the factory was developed around waterpower,” Doyle said at the Aug. 21, 2024, Planning and Zoning Commission meeting. “These water systems were intended for manufacturing and that’s all they were intended for. .. All of those systems have clocked they’re all broken. The generators are no longer functioning and the pipes that we can see that are leading to those generators in the buildings are either all rusted or squirting water.”

Water in the forebay dam and the canal continue to provide water that is pumped to a nearby cistern that feeds a fire protection system, according to the application. There are also leaks in that system causing the pump to activate often. If the system breaks, town officials have said buildings would need to be vacated until fire suppression systems can be reactivated, Doyle said.

Public water would eventually be used to feed fire suppression infrastructure, according to the plan.

At that time, the cistern would be taken out of service but the forebay pond, canal, and some tailraces would remain in place for aesthetic, historic and cultural purposes, according to the application.

Over the years, some have suggested filling in the canal and other waterways but the application and statements by the redevelopment team have noted that is not a viable option, particularly as the project will seek public funding and is being done with input from the state of Connecticut Historic Preservation Office – commonly referred to as SHPO (pronounced SHIPO).

“The Collinsville Forebay Dam, along with its associated conduits, gates, tailraces, and other appurtenances is an integral part of the former Collins Company facility. Many of the dam components are in poor condition and warrant repairs and improvements,” the application reads, later stating, “The applicants intend to restore the dam and associated systems while respecting the historical significance of the site.”

This cropped image is including on a plan that details work that would be done on the waterway system.

Proposed work includes, but is not limited to, repair of forebay dam leaks, installation of new or refurbished gates, repair of tailrace walls, removal of some tailrace walls, as well closure of conduits that once served turbines, and repair or replacing bridges spanning the tailraces. Measures will also be taken to prohibit eels from entering the trailraces as well as entering the site downstream. The application includes numerous reports, technical details and renderings about the site and the proposed work.

The application also notes measures that will be taken to protect the Wood Turtle and Eastern pearl shell, both listed as species if special concern by the state.

The DEEP permit, which agency officials estimated typically take about 6 months, is just one of several regulatory hurdles the project must clear. In June, it received the first with approval by the Canton Inland Wetlands and Watercourses Agency. That permit was necessary for work, including soil remediation, in what’s known as the Upland Review Area – areas that fall within 100 feet of a wetland or watercourse. Approximately 12 acres on the site fits into that category due to the Farmington River and manmade waterways. Work would take place over about 7.5 acres of that area and the application particularly focused on aspects such as erosion control and stormwater management.

Aug. 21 Planning and Zoning Commission meeting

A site plan application to the town’s Planning and Zoning Commission is also a crucial step and members of the application team appeared before that entity for an informal presentation on Aug. 21 as they prepare to apply as early as next month.

Doyle reviewed the condition of the property, past approvals, and recent activity, as well as aspects of the approval process and the complex nature of the site.

“We thought we knew most everything about the property and almost every day we’ve been proven incorrect … you look behind a door you pick up a stone and you see something that you didn’t anticipate,” Doyle said. “So, the process has been unfolding with us. It has taken us longer to get to the point where we might be prepared to make a site plan application.”

Doyle also asked the commission for two specific aspects of its review of the site plan approval. First, is that the application would not include final architecture. He asked the commission if it would consider the plan and, if it saw fit to approve it, would do so with the condition that the team would come back later with those details.

There are basically two reasons, he added. The team has to work closely on renovation details with SHPO and it doesn’t make sense to ask for something now that the state office might not approve, Doyle said.

As for new construction, Doyle added, the Tilney sisters are not as interested in that portion of the project and might eventually bring on a partner for that portion of the project.

“Lisa and Merritt are very interested in redeveloping the historic portion of the property. Their focus is on bringing that back. They’ve had meetings with the tenants. They’re trying to save as many of the existing tenants as they can [and] they want to make that an integral part of the Collinsville community. They’re less interested in actually being the developer of the new residential,” said Doyle, noting that the existing Granite building, which is being envisioned for condos – might be an exception.

Doyle noted that while the final architectural plans would come later – potentially in phases - the site plan, would have all the other details, such as building footprint, parking, green spaces, stormwater management, utility locations and the myriad of other details such submittals contain.

“We know what the footprint is going to look like; we know how many parking spaces are going to be around and in those buildings,” Doyle said. “We don’t what the architecture is going to look like on these buildings, and we won’t know that for quite some time.”

Doyle also said it’s important to move forward and the grant seeking process, including some to help address remediation, will be a long one and time is of the essence, he said.

“As a group, we are going to be seeking grants and public financing, both at the state and the federal level, and that’s going to start with soil remediation,” Doyle said.

In addition to the question on architecture, Doyle asked the commission to clarify whether it would have a public hearing for the site plan.

In the legal action, following 2021 zone changes, hearings became an issue as the need for several separate special permits –which require a public hearing – were removed for the axe factory zoning.

It was a somewhat misunderstood change as any developer would still be subject to a host of regulations and standards – but, at the time, the potential for less input concerned many, including some commission members. However, there are several criteria under which the Planning and Zoning Commission can require a public hearing for a site plan application, public interest being among them.

Doyle said he had no objection to a hearing, but wanted the issue clarified so the team doesn’t end up presenting its site plan twice and potentially opening an avenue for appeal.

Commission members, who did also have a few general questions for Doyle on traffic and other matters, were unanimous on the idea of a holding a public hearing when the application is submitted, noting just how important the property is in town.

“I think this is a matter of great public interest and my expectation is the sentiment of the commission will be to require a public hearing,” said member Lans Perry, who also voiced support for the idea of a potential approval with the condition of the company returning to the commission with architectural details. “I think that the idea of granting the site plan in the manner requested by the applicant is quite reasonable. I support that in terms of getting the foundations but not the elevations because it’s unknown and yet we want to facilitate the redevelopment of this very important site.”

All commission members agreed on the points of a public hearing and the idea of a conditional approval, should they get to that point.

“We appreciate the Canton Planning and Zoning Commission meeting with us informally and allowing us to submit an application for site plan approval only this fall,” Lisa Tilney said following the meeting. “We look forward to the next steps in the review process, including a public hearing.”

DECD grant opportunity

DECD grant opportunity

The redevelopment team is also working with the town of Canton on seeking funding for a DECD Municipal Brownfield Grant Program.

According to a report by GZA Environmental, soil contaminants at the site requiring remediation include

lead, arsenic, Total Petroleum Hydrocarbons (TPH) and Polycyclic Aromatic Hydrocarbons (PAHs). A cost estimate in that draft estimates cleanup of those materials between $2.2 and $3.4 million. While that includes a 25 percent contingency and a 5 percent fuel inflation contingency, the report acknowledges the price tag could change based on a final redevelopment plan.

At the recent Planning and Zoning Commission meeting, Doyle said the state is holding aside $1 to $4 million for cleanup of the site.

That GZA report, which included other aspects as well, came as part of the Phase III Environmental Site Assessments for the property. The work was funded by a $195,000 state Department of Economic Community Development (DECD) Brownfield Grant.

To further home in on cleanup costs, the town is now seeking another state grant. According to the Aug. 28, 2024, Canton Board of Selectmen packet, the town would like to seek up to $200,000 from the DECD Brownfield Grant for “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.”

Selectmen approved the application Aug. 28 and at that meeting, Neil Pade, Canton’s Director of Planning and Community Development said that the previous action plan came without a specific development initiative in place.

With the Tilneys now having a plan, the grant would help get that more specific details for remediation and related work, Pade said.

“If you submit that plan to the DECD now, you’re going to get much more specific understanding of what we have to do for contaminant removals, what the cost estimates will be. So, it is very pertinent that we do this at this time. For that program the town has to be the applicant on behalf of the private property owner,” Pade said prior to the selectmen’s unanimous approval of the grant application.

Previous Coverage

 A more extensive overview of the redevelopment proposal can be seen in our story posted in April here. Other articles can be found at this site.

June 2024 Valley LIFE interview

For those who missed it, below is our June 2024 interview with Lisa and Merritt Tilney that ran in Valley LIFE magazine.

From left, Lisa and Merritt Tilney stand on the Farmington River Trail. Behind them is the historic axe factory complex. The two are working on a mixed-use plan that would, post approvals and site work, involve rehabilitating existing buildings, expanding the number of local businesses that operate form the complex, and adding housing units to the 19.3-acre property. The granite building is currently empty but would likely be used for condominium units under the preliminary site plan.  

Collinsville Redevelopment Company has been in the news lately as its owners, sisters Lisa and Merritt Tilney, begin a journey toward rehabilitation of the historic Collins Axe Factory. Their father, Rusty Tilney, is principal of At Collinsville, LLC, which has owned the complex since 2002. CRC has an option to purchase the property when approvals are secured.

The site was home to the Collins Co. from 1826 to 1966, and is currently a hub for small business, artistic endeavors, and light industry. However, some buildings have been lost over time and infrastructure is showing its age. Redevelopment has long been a goal for the town, but how that plays out is an emotional issue for many as the factory site spawned a village and still largely defines Collinsville.

Plans for the 19.3-acre site involve a mixed-use concept that would include renovation of some 155,000 square feet of existing buildings, repair of 2,000 feet of man-made waterworks and construction of three new residential buildings that, by preliminary estimates, would include 224 apartments and 48 condominiums with parking below the buildings. Additionally, plans include 16 condominium units for the circa 1843 granite building. 

Our sister publication, The Valley Press, is closely following the redevelopment plan, which will require many approvals and extensive site work prior to rehabilitation. Those articles can be viewed in that paper and at valleypressextra.com. In this space, we wanted to hear a little more about why the two are so passionate about this project. They jointly answered these questions for Valley LIFE.

Can you briefly describe your overall vision for the property?

Collinsville is a special place. We deeply care about the historic character of the factory and the town, and we believe that a renewed, thriving complex will enhance what is already here. Our hope is that a clean site, new roads and utilities and renovated buildings will support commerce, the arts and create new tax revenue for the town.

Our intent is to keep as much of the existing fabric as possible while enhancing the site with new infrastructure and (eventually) renovated buildings. We are hopeful about what this project can do to enrich the experience of our tenants and support the community. Our emphasis is on improved connections from Main Street, through the site, and to the Farmington River with a series of stairs and accessible ramps, new green space, and new paths to the water.”

How long have you been working at this specific initiative?

We have been working on it since February of 2023.

Why now?

 Several historic buildings were condemned in 2022 because they were a public safety hazard. We realized that we needed to get involved or more of the buildings would be lost. We are both at a stage in our careers where we have experience with complicated projects, so the timing aligned for both of us.

Some in town have noted that so many plans for the property have faltered. Additionally, land use applications and projects, particularly this one, are much more complex than many realize. what can you say to ensure people that you are all in?

It is incredibly complex with all the local and state approvals that are required – the site is a brownfield, its adjacency to the Farmington River dictates special precautions so the riparian ecosystem is not adversely affected, and the forebay itself is a dam, requiring a dam safety permit from the state. All of these factors add to the time and cost of the applications for approvals (even before you start any site work or construction) and it was likely a deterrent for some of the interested parties in the past. It’s a huge challenge, but also an opportunity to further enhance an incredible place, one that is full of history, character and heart. It is a privilege to get to work on a project like this.

Why are you so passionate about the project?

This is a personal project for us; we grew up in the area and we are excited by the opportunity to realize our father’s original vision for revitalization of the factory. We are eager to rehabilitate the historic buildings for the long term, support economic development and implement creative environmental solutions. We hope this can be a beacon for other projects, as it strengthens a local ecosystem that already has an incredible mix of history, culture and character.

I understand that a final project cost is a work in progress and that there will be adjustments along the way. However, I understand that you do hope to use a combination of public and private financing?

There are a number of state and federal programs that we hope to leverage such as the Brownfield grants and historic tax credits in addition to private sources of funding.

In interviews and throughout your application, you’ve noted aspects such as climate neutrality, native plantings, and other green initiatives. Why is this important?

The construction industry and the human-made “built environment” contribute to climate change, and we feel it’s important to be part of the solution. Our site plan calls for rain gardens that will reduce the amount of impervious surface that is currently on site (there are a number of slabs still present from buildings that were destroyed during the 1955 flood). Rain gardens can hold excess water during flooding events. In terms of the actual buildings (phases further in the future) we will be targeting Eversource incentives to make the buildings energy efficient. We feel that the fact that the site is walkable to town and has direct access to The Rails-to-Trails is important for the wellbeing of the people who work, live or visit here as well.

People outside of Collinsville sometimes mistakenly refer to this property as vacant or abandoned when it’s actually a hub for small businesses, the arts and light industrial uses. Do you know how many tenants your father’s company currently has?

 Yes, we have seen references to ‘a few tenants’ and ‘vacant buildings’ which is not true! While there are areas of the site that are underutilized, there is a vibrant community of people operating successful businesses. We have approximately 50 tenants, many of whom have been renting space for years and families have been involved in various aspects of the town for decades. In additional to the amazing historic buildings, we see the tenant community as an asset that defines the spirit of Collinsville. We would like to retain the community and support it as we move forward.

Do you know the full effect on existing businesses?

Our tenants are extremely import to us – they are a huge part of the character of Collinsville. Our intent is to phase the site work to cause as little disruption as possible and new roads, more efficient parking and better services will benefit everyone. In the long run, we hope to retain existing tenants and attract new tenants that will add to the dynamic character of the town.

Do you have any overall timeframe for the project?

It is very early and there are many phases of approvals but our best guess, at this time, is six to eight years. VL