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Village Hill Surplus Land of the State Hospital Conservation Commission, Planning Board, City Council 1975PROPOSAL For The Use Of Surplus Land Of The NORTHAMPTON STATE HOSPITAL By The CITY OF NORTHAMPTON FINAL DRAFT prepared for the NORTHAMPTON CONSERVATION COMMISSION NORTHAMPTON PLANNING BOARD NORTHAMPTON CITY COUNCIL LIST OF FIGURES Figure 1. Location Map Figure 2. Land Use Map Figure 3. Topographic Characteristics Figure 4. Detailed Soils Map Figure 5. Development Limitations Figure 6. Agency Proposals Figure 7. Staff Proposal s I. INTRODUCTION A. Background The Northampton State Hospital was established in the latter part of the nineteenth century as an institution to provide care to the mentally ill, being one of a number of such institutions operated by the State Department of Mental Health. Recently, two significant changes in the methods and philosophies of teating the mentally ill occurred which have an impact on the characteristics of the physical facility. The first of these was a shift in emphasis away from insti- tutionalization of patients in favor of reintroducing them into society with treatment at outpatient facilities. The net effect of this change has been to reduce the total number of patients in residence at the various state hospitals, in- cluding the one at Northampton. The second significant change was the elimination of farming as an activity undertaken by patients. The effect of this change has been to make surplus approximately 300 of the total 550 acres included in the facility's site. As.a result in the cessation of use of that property, dis- cussions began between officials of the City and those of the Hospital as to the potential for use of the property by the City. As a result of these preliminary discussions, the Mayor of Northampton requested the Conservation Commission to begin to pursue the possibility. The Planning Department was requested to assist the Commission, resulting to date in the production and presentation of this report. B. Process: It is envisioned that this report will first be circulated to the agencies-.in the community which have expressed interest in the' potential use-of land at the `State Hospital site. After this, the report-will be-presented to the Northampton City Coun- cil for its endorsement as an official proposal by the City to the State. At sucji time as the Council endorse the report, it should be transmitted to a number of State agencies and to the Massa- chusetts General Court for action, as follows: ® The representatives in each house of the General Court who represent the districts covering the City for the sponsorship of legislation appropriate to the implemen- tation of the recommendations of this report: -1- • The State Department of Mental Health for its comments,, suggestions, and endorsement of the recommendations; • The committee which is in the process of studying the use and disposition of State lands for its comments, suggestions, and endorsement; • Those State agencies which might be involved in any of the phases of the implementation of thOze proposals, for their suggestions and comments. -2- r l~ II. EVALUATION: The site in question is located to the west and southwest of the principal buildings utilized by the Northampton State Hospital. The site is located to the south of the geographical center of,;>the City of Northampton, approximately 1.1 miles to the southwest of the City's central business area. (See Figure 1) It is bounded on the north by the Mill River; on the east by the buildings occupied by the Hospital and by a small resi- dential community which borders the facility; on the south generally by vacant industrial land; and on the southwest and west by farmland. The property is traversed by two roads, each running east and west direction; Burts Pit Road (a City Street) and Rocky Hill Road (State Rt. 66 - a county Road). The predominant land use of the property is agricultural, although a few areas of woodland also exist. There are a few buildings on the site, principally sheds associated with the former use of the land for agriculture. Also located on the site are two graves of civil war veterans who died while patients at the hospital. Off site, land use is generally residential, to the north and, agricultural, to the south and west and industrial to the southeast (see Figure 2). Approximately one half mile to the east lie the athletic fields of Smith College, with the campus itself beyond, (See Figure 3.) The land rises to its highest point near the center of the site along a drumlin,a glacially formed, elongated hill. The top north side of the drumlin over-looks the site as it slopes away towards the Mill River and its flood plain while the south and west sides of the drumlin afford excellent views of the Holyoke Range. There is a stand of mixed pine-hardwoods on the top south west corner of the drumlin. This is bordered on the drumlin slope by a platation of red pine. The aesthetic value of the red pine stand lies in its open understory which compliments the dense canopy of the tree tops. Burts Pit Road generally defines the drainage divide between the north and south parts of the site. Most of site is gently slopes above the Mill River flood plain, parts of the slope of the drumlin, and kavines which border the four unnamed streams which drain the site (See Figure 3) Soils on the site were surveyed in 1973 as part of a com- prehensive study done for the City by the United States Depart- ment of Agriculture Soil Q=servation Service. Figure 4 is a section of the detailed soils map prepared as part of this study and is followed by interpretive charts which relate soil limit- ations to specific uses. Generally, soils on the site exhibit moderate or severe limitations in concert with the limitations due to wetlands, slope, and cultural factors make the greater part of the site unsuitable for development- (See--figure- -5) In addition to the USDA/SCS survey, a detailed soils study of the site was undertaken by Curran Associates, Inc., of Northampton for the U.S. Veterans Administration as part of the latter's consideration of the site for a regional veteran's cemetery. This proposal will be discussed further in j in Section IV below. -3- III. CURRENT DEVELOPMENT POLICY: The City's Master Plan prepared with the assistance of the consulting firm of Metcalf and Eddy of Boston, and adopted by the Planning Board in 1973, recommends a variety of uses for the site, (see Figure 6) including: e open space for that area within the Mill River flood plain: e rural (low density) residential for that area north of o-e y Hill Road (Rt. b53 ssho`wn`as potentially surplus: and e industrial for that area south of Rocky Hill Road. The City's zoning ordinance designates the bulk of the site in the Residence A zone (the most restrictive) which allows single family detached dwellings on lots of at least 15,000 square feet. A portion of that part of the site which juts north of the Mill River and a strip lying along part of Burts Pit Road and along part of Rt..66 is designated as resi- dence B, requiring lot sizes of 10,000 square feet. The City is currently in the process of holding public hearings on a comprehensive revision of its zoning. Under the pro'-- piled zoning,the on-site uses remain residential. The body of the site would be S.R., suburban residence zone which allows single family detatched dwellings on lots of at least 30,000 square feet. The areas of the site above the Mill River and below Rocky Hill Road are designated U.R.B. urban residence "B", which allows single family dwellings on minimum 10,000 square foot lots plus two and three family dwellings and town houses. In addition the area across the Mill River to the northeast of the site and the area below the abanoned railroad to the southwest are slated to be 4on6,d,~; GI, general industrial. IV. AGENCY PROPOSAL: 1 One of the first actions taken by the Conservation Com- mission was to solicit input from other agencies in the City regarding possible uses ofl-the site. The responses which were received included: ® School Department on April 26, 1973 listed three potential school sites; ® Smith Vocational-Agricultural High School in a letter of May 9, 1973, reques ed 10-20 acres for cropland; A subsequent letter dated March 3, 1975 identified preferences for specific land areas and outlined expected use, for hay with corn rotation. ® Conservation Commission in letter dated February 21, 1972 an January 22, 1 7 , suggested: - use of land adjacent to the Mill River as a, part of the Mill River greenbelt; preservation oftthe drumlin (including the red pine stand) in its current state; - development of garden plots for use by citizens who do not have access to garden land; - continuation of the practice of leasing to far- mers such land as remains after other activities are provided for; - restoration of the Rocky Hill Pond; - development of a picnic",area east of the drumlin; - developme•nt`:°of a footbridge across the Mill River to connect the Elm Street /Bay State area with the north end of the property; - limitation of on-site circulation to.pedestrian and equestrian modes; - development of a state arboretum; Recreation Commission, in a letter dated June 15, 1973 proposed: - devoting the area to a pedestrian park with perime- ter parking areas but without vehicular access; -5- i - maintaining all land.not otherwise used in its natural state; - development of a 15 acre site as an active Y;. recreation area; - renewal and stocking of Rocky Hill Pond.,- - consideration of developing a small camp- ground area; sr Northampton Department of Public Works proposed in a letter of January 17, 1974, that: a 50-100 acre passive park area be developed north. of Rt. 66,'ea.st of the Rocky Hill Pond; - the "S" curve on Burts.Pit Road be straightened; - approximately 30 acres be set-aside for a future city cemetery site. ,In addition, a number of.suggestions were and continue to be received from non-City sources. These include: e a letter dated November 8, 1971, from W. J. Goggins, the steward at the Northampton State Hospital, which suggested that the land "be used for public purposes, such as hiking trails, picnic areas, bridle paths, bicycle trails, and possibly campsites . e a letter dated April 25, 1973, from Roger M. Harrington, Regional Dairy Specialist for the Cooperative Extension Service, stressing the need to continue the practice of leasing land to local farmers; * a letter on November 12, 1971, from Dr. Wilfred Bloom•- berg,,Deputy Commissioner of the Department of Mental Health, expressing the interests of the DMH Land Use Committee in preserving open space for public use; • a proposal made in early 1974 by the United States Veterans Administration that approximately 200•-250 acres of the land be used. for a national veterans cemetery. The site was subsequently dropped from consideration as a result of a soils study done by a local engineering firm which showed much of the land to be too rocky and/or too wet to be so used; -6- i e a current proposal by a building committee for a new Hampshire.County jail that such a facility be located on part of the site; e a proposal by the City to the State Department of Natural Resources that an approximately eleven acre, site on the north side of Burts Pit Road immediately west of the buildings of the Hospital be considered for a proposed state-funde.d;, skating rink. This site has subsequently been dropped from consideration. as have all sites proposed by various communities to date. V. CRITERIA Based upon the research compiled to date, following are some criteria proposed for guiding determinations of land use, design of development, and the arrangement of management responsibilities regarding the use of the property under study; a The area should in public ownership and control, with the overall objective of providing for uses which best serve the interests and needs of the general public. ® Although particular uses which provide a service to a limited part of the population may be considered, uses should generally be selected which provide a service to the population as a whole and should not necessarily be restricted to citizens of Northampton. ® Management of the various facilities should lie with whatever organization at state, county, or local level is most capable of assuming the responsibilities for that facility, and should not necessarily be vested in a single organization. ® Certain parts of the site should be retained in their, existing condition with only most minor development, including: - the Mill River flood plain and bordering slopes; - the drumlin and associated land to the south and east, from Rocky - Hill pond to the eastern most drainage-way and small stream. -7- Rocky Hill Pond (once returned to it a con- dition as a pond) and all streams draining the site along with their banks. ® The areas currently devoted to farming should gen- erally remain in an open state rather than being allowed to return to forest land, whether the use continues to be agricultural or not, although there may be specific exceptions to this. ® Roads.systems should be designed and redeveloped so as to route major traffic movements around rather. than through the site. ® Pedestrain, equestrian, and bicycle paths should be relatively heavily developed throughout the site and should tie into community wide and intercom- munity systems wherever they are planned. No road improvements should be undertaken which encourage vehicular movements through the site. Motor vehi- cles (autos, snowmobiles, and trailbikes) should be generally excluded from the site. Lease of land for agricultural use should still ensure public access when and where practical. Major, structures and/or facilities should be com- pletely restricted from wet areas, along the flood, plain, in steep slope areas, or where..soils or other conditions would be incompatible with the type of development proposed. ® Generally, like or complementary uses should be in close p=roximity to each other and incompatible or uncomplementary uses should be well removed from each other. ® Generally, the building of major structures should be minimized, but where undertaken, strict control of design and site planning should be maintained. Wherever development does occur, whether for major facilities or not., the following design guidelines should be followed'x - grading should be absolutely minimized with structures and/or other facilities (including parking areas and outbuildings) developed at several levels so as to conform.to topography rather than the latter being made to conform to single-level facilities; -8- - structures and other facilities should maintain a very low profile, and for the most part a low visibility; - parking areas and other paved suffaces should be constructed with porous materials wherever practicable. VI. RECOMMENDATIONS Based on the above criteria, following are specific recommendations for the use and development of the property, along with proposals regarding responsibility for the opera- tion and maintenance of each particular use or area.'gee figure ,'(7)_ seven for the location of each: 1. The following areas should be transferred to the owner- ship of the City with responsibility for control resting with the Conservation Commission: a. flood plain and other low areas adjac@n?t to the Mill River; b. slope and wooded areas adjacent to "a" above; c. the drumlin and associated land to the south and east, from Rocky - Hill pond to the eastern most drainage way and small stream. d. the area. known as the "red pine stand"; and e. Rocky Hill Pond and an area within 100 feet of the pond and.of all streams draining the site. Use of these areas should be restricted to current agricultural use and pedestrian, biking, and equestrian trials; nature education trails with signboards and/or markers; picnic area south of the red pine stand and adjacent to Rocky Hill Pond; parking only, for the picnic and nature trail areas. 2. A 29+ acre site between Burts Pit Road and Chapel Street (Rt. 66) should be reserved as a possible future elementary school site, however should citywide school plans obviate the need for a site in'this area, the site should be devoted to recreation uses. -9- i 3. The 15 acres north of Burts Pit Road and west of the "S" curve, should be considered as a potential active recreation site. 4. A picnic area with parking should be developed along the north side of Burts Pit Road just east of the "S" curve; overlooking the Mill River and its Flood Plain. 5. Careful reconsideration should be given to the proposal to locate a new County correctional facility on the site. While such a use would not hamper activities on other parts of the site, and while some grounds maintenance and recreation activities might be compatible, soils information indicates that there may be little or no land on the site suited to large buildings with the exception of the area described in "2" above. The most appropriate site for a jail, excluding soils consider- ations, would be on the south side of Rocky Hill Road (Rt. 66) opposite Rocky-Hill Pond,, with the area of the sit,e west of Rocky Hill Pond,, as a second alternative. 6. The curve in Burts Pit Road should not be changed, both with the objective of discouraging througTi traffic, and with the recognition that there would be a substantial physical affect on the drumlin. Improved signing and pavement marking should, however, be undertaken to increase safety. (Note that some drainage and pavement work done in 1974 improve safety over the situation which existed in 1973.) 7. . Long range highway plans for the City should be modified (by official action of the Planning Board) to provide for the development of a relocated Burts Pit Road/Rt. 66 west of the site feeding traffic into either Rt. 10 or a relocated Rt. 10. 8. Bikeways, pedestrian and equestrian paths, picnic areas, and other facilities not the responsibility of an organization capable of carrying out maintenance activities, should be maintained by either a Parks and Recreation Department or the Parks Division of the Department of Public Works under the supervision of the Recreation Director. 9a Current use of the flood plain area just"west of the' hospi ~t,-'as.. garden plots for the elderly should be continued. A,pr€gram providing garden plots for other citizens without F their' own land could also,be developed on this area, and v?., administered by,, the Conservation Commissions.. This site ha, excellent soiLond affords road access for' 'the elderly and convenient_..potential parking for others adjacen-V§to Burts„ Pit road just to the south. -10- 10., All land"s§'Ifft otherwise designated should be leased to I:y Iocal .farmers to, , supplemntf their own lands. The Conserva- handle tion C on6r..AP' br,:o, ~happropri to group shaAlic thi 'esponsibi;~it and should -charge fees ie nt to P- y , cover costs; Where~''a• cab=le, provison- should be made for public abcei~ d tke,se 1' 11`.M' On mtg. ;mal eve to meat- should be` considered sol thWt,the p area •w.Ml ream n essentia- di ::°ts; -Pre sent,,-- state! Ahd`~not' ..:broken u ~Y~ i p piecemeal. Agricultural land should remain in ague°with only minor. exceptions. h est value of t Is `land is, that it is-;a large trace o"f o e "space near the center of ;town, 7'11is should not We compromised. -11- _a CITY O NORTHAMPTON MASSACHUSETTS CONSERVATION COI. WIISSION ) 12 coye~ all BE IT RESOLVED BY THE CONSERVATION COMMISSION OF THE CITY OF NORTHAMPTON WHEREAS the Northampton State Hospital, like other similar facilities in the Commonwealth, has found it to be reasonable and appropriate to declare some of its property to be surplus and available for d--'Ls- position; and - WHEREAS the Northampton Conservation Commission has, with the assistance of the Northampton Planning Department, undertaken a study of the feasibility of reuse of the land by the City of Northampton; and WHEREAS this study has been conducted with an emphasis on the environ mental, social, administrative, and fiscal constraints on the reuse I of the property, and has produced a set of recommendat.ions as to reuse which is sensitive to these constraints; and WHIEREAS the Conservation Commission has reviewed the final draft report on the proposed reuse; NOW THEREFORE BE IT RESOLVED that the Conservation Commission of the City of Northampton does hereby endorse the conclusions of the report, including the proposed limitations on reuse, the proposed uses and locations, and the proposed methods of administering the property; and BE IT FURTHER RESOLVED that the Conservation Commission hereby recom- mends to the City Council the endorsement of the draft report as an expression of formal City policy on the reuse of the property; and BE IT FURTHER RESOLVED that the Conservation Commission recomiends that the Mayor and City Council pursue the implementation of the recommendations of the report through-the appropriate means. This resolution.-was adopted by the Northampton Conservation Commission on March 24, 1975. Richa.r Carnes, Chairman Northampton Conservation Commission BE IT RESOLVED BY THE PLANNING BOARD OF THE CITY OF NIORTHAMPT'ON WHEREAS the Northampton State Hospital, like other similar facilities in the Commonwealth, has found it to be reasonable and appropriate to declare some of its property to be surplus and available for disposition; and MER.EAS the Northampton Conservation Commission has, with the assistance of the Northampton Planning Department, under- taken a study of the feasibility of reuse of the sand by the City of Northampton; and WHEREAS this study has been conducted with an emphasis on the environmental, social., administrative, and fiscal con- straints on the reuse of the property, and has procured a set of recommendations as to reuse which is sensitive to these constraints, and WHEREAS the Planning Board has reviewed the :final draft re- port on the proposed reuse; NOW THEREFORE BE IT RESOLVED that the Planning Board of the City of Northampton does hereby endorse the conclusions of the report, including the proposed limitations on reuse, the proposed uses and locations, and the proposed methods of ad- ministering the property; and BE IT FURTHER RESOLVED that the Planning Board hereby recom- mends to the City Council the endorsement of the draft report as an expression of formal. City policy on the reuse of the property; and BE IT FURTHER RESOLVED that the Planning Board recommends that l the Mayor and City Council pursue the implementation of the recommendations of the report through the appropriate .means. This revolution w,ra4 adopted by the Northampton Planning.Board on April 2, 1975. Charles W. Baranowski, Chairman Northampton,Planning Board: