ࡱ> \ bjbj *jbjbq%  8t0"sssssss$Ovysss$$$s$s$$.6mHr uC .~o@ss0to\y1#y&ry&rd$ss$ty B ^: Introduction Purpose and Goals The Town of Chelmsford may have an opportunity to purchase a piece or property currently owned by the Commonwealth of Massachusetts. The property was most recently used as, and is commonly referred to as the UMass Lowell West Campus. In anticipation of this opportunity, the Town Manager formed the UMass Lowell West Campus Planning Committee. As described in the memo from the Town Manager upon creation of the committee: The goal/task for the Committee is to conduct a community visioning/planning process for the future use of the parcel. Hereafter, the UMass Lowell West Campus Planning Committee will be referred to simply as the committee. The committees purpose is to identify and assess options for what the town could do with the property if it is acquired from the state. The committees goal, and the objective of this report, is to present the town with our recommendation for the best potential use, or uses, for the property. The committee is not responsible for deciding if the town should acquire the property. However it is intended that the committees assessment will inform that decision. The committee is not responsible for developing a detailed plan for potential development of the property. However it is intended that the committees analysis will form the foundation for such a detailed design and provide a basis for evaluating proposed plans. Property Location and Description The UMass Lowell West Campus property (hereafter referred to as the property) is situated in North Chelmsford at 255 Princeton Street (the property ID, for looking up the property in the towns Graphical Information System and Assessors Database, is 20-74-1). The property is 34 acres in size. The University has not actively used the property for almost two decades. There are vacant buildings on the property. The property features uneven terrain. There is considerable wetland within the property located in one particular low-lying area. The highest points of the property sit at the top of a hill that drops down to a residential area that is privately owned. Much of the surrounding community is populated with dense housing units. Quite a few of the housing units are age restricted. The property is about of a mile from the North Chelmsford Village commercial district via Princeton Street (including the portion that becomes Route 3A). There are sidewalks along both roads leading to the commercial district. Heading in the other direction on Princeton Street it is about 100 yards from what was he entrance to the campus to the border between the Town of Chelmsford and the City of Lowell (in Lowell, Princeton Street becomes Princeton Boulevard). There are commercial businesses in Lowell, including a supermarket, about a mile from the property. The property is currently zoned RB. RB is a zoning district that allows low-density single-family houses by right. Low density is defined as one housing unit per 40,000 square feet (roughly an acre). Municipal facilities, for example a school, are an exempt use and therefore permitted. No overlay zoning applies to the property. History of the Property The earliest cited use of the property is the Middlesex County Training School, a detention facility established in the late 19th century. The facility operated at the site for decades, and included athletic fields. The Wang family acquired the property in the 1970s. The intention was apparently to build a headquarters for Wang Laboratories, but that never happened. In the 1980s part of the property, including the athletic fields was sold to developer and is now a housing development. The rest of the property was effectively donated to UMass Lowell and became what is now called the West Campus. The University used the property as the Graduate School of Education for about two decades. The University abandoned the property due to the deteriorating condition of the buildings, but they have retained ownership. In 2013, a fire destroyed one of the buildings on the property. Four deteriorating buildings remain. An Evaluation and Emergency Management evaluation characterizes the current conditions: The site appears overgrown with vegetation and exhibits signs of ongoing use as well as mischievous and criminal activity including graffiti, vandalism, paths worn through the vegetation, and trash. At this point, the Universitys only interest in the property is to leverage it to generate money for improvements and upkeep for other facilities operated and owned by the university. The Town of Chelmsford has been in negotiations with the university and state officials regarding acquisition of the property. Chelmsford Town Meeting would have to approve any expenditure to purchase the property. Committee Members The Town Manager established the committee with seven members. Four of the members represent and were appointed by other town boards. Three members were designated as neighborhood/Chelmsford residents. The membership of the UMass Lowell West Campus Planning Committee, responsible for this report is: George Dixon (Chair) representing the Board of Selectmen George Zaharoolis (Vice-Chair) representing the Planning Board John P. Crane representing the Vinal Square Strategic Action Plan Committee John Edward representing the Housing Advisory Board Helen Blasioli neighborhood resident Linda Gervais neighborhood resident Angela Serra (Clerk) neighborhood resident Acknowledgements While this report represents the committees analysis, it also reflects the contributions of many others who provided input, guidance, and feedback during the process. It would be impossible to identify every individual, but the following entities deserve acknowledgement, and have earned the gratitude of the committee. Town of Chelmsford Department of Community Development Town of Chelmsford Town Managers office Various other town departments and officials representing: Public Works Public Health Police Fire North Chelmsford Water District Building Commission Conservation Agent/Planner Northern Middlesex Council of Governments (NMCOG) Chelmsford Housing Authority University of Massachusetts Lowell Residents of Meadowood, Windemere, Wayside, and other neighborhoods of Chelmsford who attended and contributed to committee meetings and the Public Input Session. Report Organization Section 2 of this report documents the process the committee went through to assess the property and its potential uses. In general, section 2 is organized in chronological fashion, reflecting the sequence of tasks performed by the committee. These tasks included an effort to learn about the property and its potential uses from town boards and officials, studies commissioned by the town and other entities, neighbors of the property, and from other stakeholders including town residents. Section 3 presents the findings of the committee. While acquiring information, as documented in Section 2, the committee developed its vision of the best potential use of the property, assuming the Town of Chelmsford acquires it. The report concludes with recommendations from the committee to the town on next steps. Process Process The committee met roughly every other week in open session. The following subsections describe the process conducted by the committee. It is presented largely in chronological order describing the evolution of the committees progress toward achieving a consensus vision. SWOT Analysis The initial organized activity of the committee was to conduct a SWOT Analysis. SWOT is an acronym for Strengths Weaknesses Opportunities Threats. Every committee member contributed by offering their perspective on features of the property, within the context of potential acquisition by the town, that fall within each of the four categories. The purpose of such an exercise is not to immediately reach a consensus on how to use the property. The purpose is not to achieve agreement on perspective, as the committee was formed to represent multiple perspectives. Rather the purpose is to identify the various perspectives, the issues likely to arise, and potential conflicts. To the extent that potential uses are identified is a beneficial side effect. The following lists enumerate all of the inputs from the committee members. It should be noted that none of these items are to be construed as a consensus of the committee as a whole. Strengths: Close to amenities Drum Hill gas, shopping On LRTA Close to Rt 3 & Rt. 495 34 acres of open land (10 cannot be developed) Room for open space, recreation without imposing on nearby neighborhood Campus like feel to property Historic preservation Support over 55 community Potential for town revenue Town owned = town control Proximity to high density development (55+) Buffer zones with residential neighbors Weaknesses: Age and condition of existing buildings Topography Infrastructure (sewer, water, electric) Not close enough to amenities Limited access Right on the Lowell line Potential soil contamination Fast & heavy traffic Acquisition cost Condition of existing roads No sidewalks (within the property) Opportunities: Tax revenue Beautification Development while maintaining country setting School Wounded warriors/veterans housing Smaller homes (age restricted/affordable) Starter homes Leverage chapter 40R money Rentals (community gardens, outings) Open space and recreation Reuse of existing buildings Leverage of housing stabilization fund Leverage community preservation fund Truly affordable housing Threats: Kids Vandalism Overdevelopment Negative tax impact Disturbance to wetlands Loss of landscaping Encroachment of abutters Overburdening emergency services Noise pollution Limited access/congestion Increased traffic Overburdening sewer capacity Contention Confusion/misinformation Pests 55+/40B/affordable Overburdening schools Adverse impact on abutters (water) Light pollution Chelmsford Housing Authority Presentation The committee, in open session with many neighborhood residents in attendance, received a presentation from David Hedison, Executive Director of the Chelmsford Housing Authority (CHA). Mr. Hedison was sharing ideas for how the property could be used. He made it clear it was just the ideas, thoughts, and vision (opinions) of the CHA and CHOICE Inc. (Choice Housing Opportunities for Intergenerational and Community Endeavors -- the non-profit development arm of the CHA) and it was not an all-or-nothing proposition (i.e., the town could adopt part of the vision while not adopting other parts). He further made it clear that the vision does not require that CHOICE be the developer, and that the CHA will support the town as best it can, based on how the town decides to proceed. While the vision did not represent a detailed plan, the presentation reflected well thought out ideas based on the housing authorities knowledge of the needs of the community, as well as a market analysis commissioned by the CHA. A key slide in the presentation offered Thoughts about the area including thoughts (quoted directly from the presentation) regarding the potential use of the site: The majority of the abutters are residing in age-restricted communities with limited services and socialization. The site is quite green and a significant portion should remain green. In addition, the green space could be and should be utilized by the neighborhood for walking paths, nature, and wildlife. The existing structures closest to the adjacent properties are in disrepair and should potentially come down and be replaced with additional green buffer and lower density structures lower in height. How can this site positively impact the current neighbors as well as local residents that do not want to leave their community? What are the options for seniors in Chelmsford that want to move to an active community that will allow them to be thrive in motion, actively participate and should their needs change, they will have a range of services and amenities on site. These considerations inform the vision, which is essentially to combine age in place (or thrive in motion if preferred) housing units with services for the extended community including nearby age-restricted housing. The vision is for a mix of housing unit styles, with all units being rental (with life leases), targeting a more affordable price point. Mr. Hedison stated he is not ruling out the possibility of including truly affordable units as part of the development, where truly affordable would target households not exceeding 50% of the Area Median Income, a standard used under Chapter 40B and provided by housing developed and managed by the CHA and CHOICE. Examples of services cited were a wellness facility, medical care, meals programs, and activity areas. The vision also includes a relationship with UMass Lowells Zuckerberg School of Health Sciences. CHA also provided the committee with copies of a Market Opportunities Assessment for Senior Living in Chelmsford. Highlights of that report will be presented in section 2.7. For now, suffice it to say the assessment of the market supports the CHA vision. Potential Uses Subsequent to the vision presented by the CHA, the committee generated a list of potential uses. During this exercise committee members were asked to not worry about the feasibility of potential uses or to weigh costs against benefits. In short, the intention was to generate a list of ideas, potentially for further exploration, not to pass value judgments on individual ideas. The following ideas were submitted: Allow, under current zoning, development of single-family homes; or with a zoning change (from RB to RC) allow multi-family homes. A location for providing buildings and other structures for general municipal purposes (e.g., schools). Preserve as Open Space, potentially available for passive recreation. Wounded Warrior housing and elderly housing. Historical preservation. Do nothing the Town of Chelmsford does not acquire the property. The possible ramifications of the last option (i.e., not acquiring the property) will be discussed in section 3. Public Input Session On Tuesday June 6th, 2017, the committee held a Public Input Session. Staff from the Northern Middlesex Council of Governments (NMCOG) ably facilitated the session. Over 50 members of the community came to the Senior Center to participate. NMCOG had the community audience participate in their own SWOT analysis. The results of the SWOT analysis conducted by the committee (see section 2.2) were intentionally not revealed to the public, at least initially. However, some participants were well aware of the proceedings of the committee via their attendance at meetings (all of which were public under Open Meeting Law). Before proceeding to the step discussed next, elements of the committees SWOT analysis were added for public consideration and feedback. In addition to coming up with strengths, weaknesses, opportunities, and threats, the public was also asked to use color-coded stickers to indicate their priority preferences. This allowed the community in attendance to tell us what was important to them. The results, as provided by NMCOG, are reported in the tables below. A few observations by the committee are provided after the tables. UMass Lowell West Campus SWOT Session Results: 6-6-17StrengthsParticipant PrioritiesTotals1st2nd3rd4thDotsPointsHabitat/ fresh air515442877Size 34 acres4200622Wildlife habitat415493278Roads already in place1221615Location - stores2202616Walkable3401825Public transportation1022510Bus line001123Proximity to hospital/ Technology Dr1251921Open space34261534Recreational possibilities24271531Undeveloped/ minimum clearing0323816Controlled by the State000555Potential re-use of one building41321027Campus like feel011247Possible tax revenue for the Town88402064Infrastructure in place0511718Two nice ponds0530821Mature tree growth110101236Historic preservation2121616Support over 55 community2943238136Town owned = town controlled180402280Proximity to high density development (over 55)35411336Buffer zones with residential neighborhood2412924 WeaknessesParticipant PrioritiesTotals1st2nd3rd4thDotsPointsAbandoned buildings2331924No trespassing - lack of information about the property000000Fire damaged buildings000000Wetlands not good for development000111Traffic2610928Limited access020359Cost to town to purchase1420720Go before town meeting to be approved000000Cost of demolition0321614Growth impacting schools6200830Hazardous materials0320513Limited options due to zoning011025Storm water runoff - drainage91121343Fire Dept. is overtaxed27011030Concern about emergency exits 0700721Worry about zoning changes, outside groups taking control of the land221002391Age and condition of buildings0302511Topography0230512Not close enough to amenities000222Right on the Lowell C.L.101137Fast and heavy traffic18211233Condition of existing roads012037No sidewalks021038 OpportunitiesParticipant PrioritiesTotals1st2nd3rd4thDotsPointsIncrease in tax revenue201002183Future high school112101421Senior housing/ hospice/ assisted living4533455199Veteran housing55121339Leverage CPA funds/ housing stabilization000000Open space2530028109Cemetery0405917Starter homes000000Wounded warriors05141021Low income housing run by Housing Authority110027Property controlled/ designed by Town143101867Athletic fields12251019Truly affordable housing000333Mini-mansions040111523Playgrounds/ recreational area63331542Nature preserve153101971Retail complex003242730Beautification0400412Leverage Chapter 40R money000222Rentals1033713 ThreatsParticipant PrioritiesTotals1st2nd3rd4thDotsPointsEnvironmental pollution100101142Financial burden on school system2403923Overtaxing capability of public safety1302615Crime77221855Some other entity may buy it and the Town will lose control of the property202212591Auto dealership72051439New high school23341227Economic viability2012512Taxes going up32421128Burden on natural resources/ infrastructure002024Can heir's come back to claim the property?000222Acquistion costs to the Town05511126Cutting down trees47401545Wildlife - destroying wildlife45911950Section 8 housing3663146169Kids2021513Vandalism2311720Overdevelopment123001557Disturbance to wetlands5031927Abutter encroachement1303716Noise pollution1220514Overburndeining sewer system14321024Contention001234Pests3021617Confusion/ misinformation00011155+2012512Light pollution01012440B2652437127Over 55/ 40B73021239 One observation is that the attendees at the public input session were not representative of the towns population. They were skewed both demographically, and geographically. Another observation offered by some of members of the committee was that it was not entirely clear that participants fully understood the SWOT analysis framework, or exactly how the placement of dots was to be interpreted. Having said that, there was a reasonably clear consensus among the people who participated: Strong desire for senior housing and related services. While preserving open space and wildlife. While generating tax revenue for the town. Strong concerns about what could happen if the town does not assume control of the property. Including section 8 housing, 40B projects, or other zoning changes that would bring (presumably, as reflected by these participants) unwanted development. Site Walk The committee, with permission and support from the University, participated in a site walk. While pictures and maps and conceptual plans are good, we needed to see it close up. The focus of the site walk was to allow committee members to familiarize themselves with the topography, the proximity to surrounding communities, and current conditions. Other Reports During the process described in previous sections, the committee was provided with reports that informed the process, and ultimately the vision approved by the committee. This section identifies some highlights from those reports. The University of Massachusetts Lowell provided a Draft Environmental & Emergency Management Evaluation Packet of the vacant buildings that currently exist on the property. Highlights of that report include: A total building loss after a fire occurred at Read Hall on August 28th, 2013. Signs of ongoing use as well as mischievous and criminal activity. Immediate recommendations, including: Establishing a fenced perimeter, Immediate demolition of Richardson Hall, Securing Upham and Gould Halls More detailed observations, recommendations, and pictorial evidence regarding the state of existing buildings. The report was not intended to assess the feasibility of preservation or reuse of the buildings other than Richardson Hall. While at least some committee members and some members of the public are interested in historical preservation and potential re-use, neither this report nor the site walk offered encouragement toward that end. Having said that, the committee could not conclusively rule that out further assessment by structural experts would be required. The Chelmsford Housing Authority provided a Market Opportunities Assessment for Senior Living in Chelmsford, Massachusetts. SK Advisors, who describe themselves as offering trusted guidance to the senior living industry, prepared the report. The report was prepared for the CHA, and was engaged in specifically in the context of the potential acquisition of the UMass campus property. As described in the Introduction of the report they were asked to conduct a market opportunities assessment to examine and test potential scenarios for senior living products and services on the site in Chelmsford. Highlights of this report include: The site offers a natural, wooded setting. The site is bordered by residential development on all sides and notadly by a 55 and over active adult development. Overall, the competitive marketplace in the market area is sparse for independent living, well-developed for assisted living and dementia care services, and over-saturated for skilled nursing care. There is demand for perhaps 130 to 180 independent living units. While the market for assisted living care is very well-developed and competitive the report does offer support for other ways to provided assisted living care on-site. While the competitive market for dementia care is fairly well-developed the report notes there is still an unserved dementia care need in the market. The overall conclusion is that there is an opportunity to develop an integrated senior living community providing at least a partial continuum of care at the proposed site. In other words, the market assessment supports the ideas presented by the CHA. Input from Town Officials The committee solicited input from various town officials regarding potential uses of the site and in particular regarding concerns with the evolving vision of the committee. The following is a summary of the feedback received. The Town Manager reported that no municipal use for the property has been identified. The Assistant Director of Public Works observed, If housing is proposed, upgrades will be needed at a pump station, and perhaps a new station depending on the size of the project. The Public Health Director offered thoughts, including: Continuum of care to age in place is an important priority, Local preference for Chelmsford residents is important, Allowing nearby over 55 communities to use on-site amenities could present logistical problems, and All units have to be handicapped accessible if it will be advertised as an age in place facility. The Chelmsford Police department did not have any comments as of this time. The North Chelmsford Water District stated that a water impact study would be required. The Chelmsford Fire Department Chief asked that we add improved emergency vehicle access between the U-Mass Lowell property and the adjacent Windemere community. The Building Commissioner had no comments at this time. The Town of Chelmsford Conservation Agent/Planner observed, According to best available GIS data, the Mass Wetlands Protection Act and Chelmsford Wetlands Protection Bylaw will apply for any future site work. Conservation review of any plans will be necessary. There is a potential vernal pool on site. Update on the Legislative Process The Town continues to work with the University and its legislative delegation on draft legislation that, if filed and enacted, would allow the sale of the property to the Town outside of the standard state land disposition process. Vision Committee Vision Based on the process described in Section 2 and all input received by the committee, as directed in our charter, a vision for the property was created. Committee members were asked to submit their own brief vision statements. The vision statements were reconciled where necessary in an attempt to achieve a consensus vision. Based on that process, and employing the CHA presentation as input, the Community Development Director and the Executive Director of NMCOG were asked to draft a West Campus Vision. After review by the committee and recommendation of changes to the initial draft, the vision was approved during the September 12th committee meeting. A few days later it was posted on the Town of Chelmsford web site for public review. The vision is designed to reflect the committees considered opinion based on the analysis described in section 2, as to the best potential use for the UMass Lowell West Campus property, again, assuming it is acquired by the town. Below is the vision. West Campus Vision A. The reuse of the site should result in housing units with the following characteristics: Age-restricted (55 years and over) Housing units should accommodate the Towns goal of adding to the Subsidized Housing Inventory and providing truly affordable housing, in particular for low-income seniors. Project proponents should consider ownership, rental and/or life lease units, or any combination thereof Local preference should be given to veterans age 55 and over, Chelmsford residents, and former Chelmsford residents Facilitated & Independent Living facilities should be included The project should include a continuum of care, so that residents can age in place B. The site design should include the following features: Housing units should target moderate-income residents and be designed as villas and/or cottages (e.g. 1,200 sf 2-bedroom units), and garden-style condos, apartments or assisted living units (e.g. 800 s.f. units with 1 or 2 bedrooms). Each unit should include a kitchen and laundry area. Low-rise buildings should be located along the outside of the site, with multi-story buildings located in the central area of the site, to reduce any visual intrusion on abutting neighborhoods. Multi-story buildings should be no more than 4 stories. If possible, at least one of the existing buildings should be preserved and rehabilitated, given the historic significance of the facility. Depending on community goals and objectives, as well as site conditions, the resident population could be 200 to 400 individuals living within a combination of villas, cottages, garden style condos and/or an assisted living facility. To the extent possible, a buffer area should be provided between the new building and adjacent existing residences. This may be accomplished through site design, plantings and landscaping. Existing mature trees should be retained. A fire and emergency access road should be incorporated into the site design, connecting to Meadowood. Buildings constructed along the primary access roadway should not be located within 200 feet of the roadways intersection with Princeton Street. The project should include amenities for residents, such as a recreation room, health center, wellness center and pool, and a dining room, caf, lounge, function room, art studio, library, garden area, salon and transportation services. Non-project, over age 55 Chelmsford residents living in nearby should be allowed to purchase a monthly membership to the project amenities for an affordable fee. Public open space should be incorporated into the site design. The open space area should include passive recreation, such as walking trails, picnicking, and bird watching. C. Municipal Benefits: The project should deliver tangible benefits to the Town, such as increased tax revenue, provision of affordable housing for seniors, job creation, and passive recreation opportunities. To the extent practical, the project should generate revenue to offset costs incurred by the Town in delivering the important community benefits offered by this project. Based upon all vision / goals and objective criteria, consideration should be given to a development that is a partnership between a not for profit entity such as the Housing Authority and a for profit entity. Should the project be constructed and/or owned by a non-profit, a Payment in Lieu of Taxes (PILOT) agreement should be negotiated. Town residents should be given access to the trails and passive recreation areas created as part of the project. To the maximum extent feasible, a percentage of housing units should be reserved for local preference, such as current resident, former resident, or family currently living in Chelmsford, etc. The project should contain a Veterans housing component for those 55 years and older, with preference given to those with disabilities. The project should create an intergenerational environment, including a partnership with the UMass Lowell School of Health Sciences, utilizing the active participation of undergraduate and graduate students in nursing, gerontology, nutrition, physical therapy, and wellness programs. Competing Vision The committee had hoped that other visions for the property might emerge, however, that was not to be with one exception. While no concrete or fully developed alternative has been proposed, the competing vision is to develop the site under current zoning, should the Town of Chelmsford not acquire the property. Presently, the property is zoned for single-family residential use on one-acre lots. This zoning designation allows for the construction of approximately 20 single-family homes. If the University elects to forfeit the property to the State, the Division of Capital Asset Management and Maintenance (DCAMM) will handle the disposition of the real estate. DCAMM is responsible for all state real estate activities, including acquisition of property, disposition of surplus property and the leasing of space on behalf of state agencies, for offices and other facilities. Under this scenario, the site would first be offered to another state entity. Pursuant to M.G.L. Chapter 7C, Sections 32 38 and additional legislation that is property specific, DCAMM is authorized to dispose of state-owned property through a competitive process which includes the auction method. The Sale Partnership Program is a new Commonwealth - Municipal Land Disposition Model that allows a municipality to purchase and market (to the private development community) former state surplus real estate assets that have significant economic redevelopment potential and are located within their municipality. When the municipality resells/leases all or a portion of the asset, the net sale proceeds are shared between the Commonwealth and the municipality. Throughout the reuse planning, marketing and resale contract negotiations, DCAMM is available to provide technical assistance to the municipality. Westborough, North Reading and Medfield are examples of communities that are participating in the Sale Partnership Program. This is a program that the Town could explore should the property be surplused. Recommendations Negotiations between the University and the Town seem to have stalled recently, as has any progress on the filing of legislation allowing the Town to purchase the property outside of the DCAMM process. Nonetheless, the Town should continue to work with the University and its legislative delegation to actively pursue control of this property. The preferred vision for reuse of the property has been outlined by the Committee in Section 3. Should the University decide to surplus the property to DCAMM, the Town should monitor the disposition process to determine whether there are other opportunities through the DCAMM process that may prove advantageous for the Town, while still addressing the neighborhood concerns identified through this planning process. Until such time as ownership of the property is transferred to the Town, the University should ensure that public safety is paramount at this location, through regular patroling of the site, removal of any debris deposited at this location, and by regularly examining the abandoned structures for any fire hazards, trespassers, or other security breaches.     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