VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER

Hanaa Abdel Rohman, Laurie Calvert, Jim McKeag, Rebecca Toole

VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER TUFTS UNIVERSITY DEPARTMENT OF URBAN AND ENVIRONMENTAL POLICY AND PLANNING FIELD PROJECTS, MAY 2014

Hanaa Abdel Rohman, Laurie Calvert, Jim McKeag, Rebecca Toole ACKNOWLEDGEMENTS

The team would like to thank Professor Justin Hollander and Teaching Assistant Jingyu Tu for their guidance, encouragement and insight throughout this process. We extend our gratitude to the entire Fernald Working Group for their knowledge transfer, and trust in our efforts to prepare this analysis for them. Finally, we thank the various stakeholders for their time and opinions through the interview process. TABLE OF CONTENTS

ABSTRACT 7 EXECUTIVE SUMMARY 8 1. INTRODUCTION 10 2. CONTEXT 21 3. COMMON ISSUES IN REPURPOSING SIMILAR SITES 27 4. ENGAGEMENT OF STAKEHOLDERS 34 5. RESEARCH DESIGN 38 6. FINDINGS 46 7. CONCLUSIONS 62 8. RECOMMENDATIONS 68 APPENDIX A: REFERENCES 72 APPENDIX B: MEMORANDUM OF UNDERSTANDING 81 APPENDIX C: IRB DOCUMENTATION 86 APPENDIX D: META!ANALYSIS SNAPSHOT 89 APPENDIX E: SAMPLE INTERVIEW QUESTIONS 92 APPENDIX F: SURVEY REPORT 95 APPENDIX G: STATE HOSPITAL PROFILES 104 LIST OF FIGURES AND TABLES

Figure 1: Map of Fernald Development Center’s regional context. Source: MassGIS. Figure 2: Fernald in the context of the surrounding community. Source: MassGIS. Figure 3: Aerial view of Fernald site. Source: Massachusetts Executive Office of Transportation, Waltham Planning Department. Figure 4: One of the buildings at Fernald. The buildings are in various stages of deterioration. Source: Daderot. Figure 5: A boys’ dormitory at Fernald when the city was known as Waverly. Source: Rootsweb.ancestry.com. Figure 6: 1857 photo of Fernald when it was known as the Massachusetts School for the Feeble-Minded. Source: Harvard Art Museums/Fogg Museum Figure 7: An example of the Kirkbride plan. Source: kirbridebuildings.com. Figure 8: Willard State Hospital. Source: kirkbridebuildings.com Figure 9: State hospitals and state schools considered for meta-analysis. Figure 10: FWG survey results on member priorities. Figure 11: FWG survey results on time frame and type of stakeholder.

Table 1: The brownfields dual land-use policy challenge. Source: McCarthy 2002. Table 2: Nine steps recommended by the National Park Service for property control. Table 3: Four components that contribute to the overall success of a reuse project. Source: Burchell and Listokin 1981. Table 4: Distribution of included sites across states. Table 5: Descriptive statistics. Table 6: Fernald vs. Means for Sample and MA. Table 7: Correlation matrix. Table 8: Stakeholder interests. Table 9: Stakeholder values. Table 10: Rank of interests by positive support. Table 11: Rank of interests by negative support. Table 12: Rank of positively identified values. 7 VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER find that citizen-led groups can influence the reuse process but need to be sensitive about how they negotiate their authority within established procedures. We recommend some strategies and approaches that may improve the chances of a positive and collaborative reuse process. their original purpose and to apply these findings to the potential Massachusetts. reuse This project was of conceived as the a partnership between Fernald a citizen-led Developmental coalition, the Fernald Center Working Group, in and Waltham, a team of Tufts University graduate students. The study includes a meta-analysis of similar New England sites that provides a and interests the of understanding an provide that interviews and surveys limited as well as framework analytical comparative values of community stakeholders. We find that the parallel processes of development and decline of these sites in relation to the growth of urban areas often present physical and logistical challenges for a timely and inclusive reuse process. We also ABSTRACT This study seeks to identify the common issues in repurposing and developing large institutional sites that have outlived EXECUTIVE SUMMARY

The Fernald Developmental Center (Fernald) was established in Boston in 1848 and moved to Waltham, Massachusetts in 1888. It is the oldest facility dedicated to the treatment of the developmentally disabled in the Western Hemisphere (Daly 2014) and is among the last remaining state-run care facilities for the mentally ill in the state. With a sprawling campus of more than 70 buildings on approximately 200 acres of land, Fernald represents the evolution of state care facilities since the lavish and massive state hospitals1 of the Victorian era fell from popularity in favor of a model based on custodial care (Yanni 2007). These facilities developed in relative isolation from the communities that surrounded them and yet they were at the mercy of the same economic, social and political forces. In 2003, when then Governor Mitt Romney declared his intention to close Fernald (T&G 2003), the state hospital and county sanatorium directly to the north and northwest had already been shuttered and sold and were in the process of being redeveloped. These processes were lengthy, cumbersome, and often rancorous (Burghdoff 1994), and some members of the community were not satisfied that the outcomes met their expectations or satisfied the interests of the community .

The following year, the Fernald Working Group (FWG) was formed as a coalition of community groups, non profit agencies, and private citizens. They coalesced around a shared vision rooted in the values of sustainable development and advocated for a community-based approach for the future development of the Fernald Developmental Center. After articulating a vision in 2009, FWG continued to reach out to community members until in 2013 they felt it necessary to identify and develop specific projects for which they believed there was general consensus and had the potential to move the planning and reuse process forward.

This project is the result of a partnership with the FWG and a graduate student research team from Tufts University’s Department of Urban and Environmental Policy and Planning (UEP) and grew out of FWG’s desire to better understand and influence the planning process as it pertains to Fernald. The goal of this research is to understand common issues in repurposing large institutional sites as well as identify stakeholder interests and values as it relates to the redevelopment of the Fernald site. Our team performed a meta-analysis comparing similar sites in the New England region, conducted a survey of the Fernald Working Group members, and held interviews with community stakeholders. A review of academic literature as well as

1 The distinction between state hospitals, state schools and state sanatoriums deserves clarification. State hospitals were primarily established for the care and treatment of the mentally ill, state schools for the education and care of the developmentally disabled, and sanatoriums for sufferers of tuberculosis. Other state institutions included almshouses, workhouses and farms, and institutions for the criminally insane. This report makes no attempt to to explore the differences between these classes of patients or facilities, but as the literature on the reuse of these sites is primarily concerned with state hospitals, that term will often be used in this report as a stand-in to describe all such facilities. 9 VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER

process based on established methods. We conclude that citizen groups like the FWG can play a significant use issues role and can in help create shaping positive outcomes the for local planning communities. We process also conclude for that such groups complex cannot assume land among relationships build and support of base broad a engage to care special take must but process, planning the in authority positions. and interests narrow representing of perception the avoid to are they if authorities and makers decision established planning the enhance help and perceptions these mitigate help can feel we that processes and strategies some recommend We material material provided by our client and various municipal and state agencies also informed our methods and results. Our findings difficulties the processes, reuse and disposition the of length the including criteria using sites similar of typology a established of repurposing the often enormous amount of space at large institutions, the challenges of site contamination, and lingering negative public perception. In addition, the survey and interviews revealed broad areas of consensus and research around team’s open The space resources. and historic of preservation the and neighborhoods surrounding for low-impact issues, related interests and values. goals and in consideration of stakeholder are grounded in FWG’s stated recommendations 1. INTRODUCTION

11 / COMMUNITY PROFILE 15 / FERNALD WORKING GROUP 17 / TUFTS INVOLVEMENT 18 / DEVELOPMENT OF RESEARCH QUESTIONS 18 / GOALS 19 / STRUCTURE OF THE REPORT 11 VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER tham is a city of 13.6 square miles located inside the COMMUNITY PROFILE COMMUNITY freeways (Route 128, Interstate 90, and Route 2, see Figure 1). The city is separated into roughly two major regions: the urbanized south that developed around the centers manufacturing on the Charles predominantly River single-family and the homes the neighborhoods north. and of Waltham rolling is nestled hills between these to routes and intended to guide within relationships strengthen to and vision FWG its of acceptance as it seeks section This communities. regional and Waltham broader the to build community provides an overview of the City of Waltham, a description of the Fernald Developmental Center, an introduction involvement to with the our project, and an outline report structure. of the overall Wal 1). (Figure loop inner Boston’s defines that beltway 128 Route and 1738 in Watertown from separated officially was Waltham history industrial city’s The 1884. in city a as incorporated was is rooted in textiles and watch manufacturing that developed along the Charles River, but farming was community also and home several large to farms These industrialists. and merchants Boston prominent summer a estates robust of and estates provided much of the land institutions on along Trapelo Road which in North Waltham, the including state and Murphy, 1988). Fernald, were located (Petersen In more recent times, major Waltham three to close has area an in established space office corporate for itself base as a understand understand the interests of community stakeholders and to examine the planning processes that allow for participative community involvement. Our analysis and findings are the densely populated and heavily developed Route OVERVIEW lasting benefits to the greater Waltham community (Fernald Working Group 2014). Our role is to consider the academic literature pertaining to the redevelopment of similar sites, to and collaborative planning process. Our client, the Fernald Working Group (FWG), is a coalition of community organizations and residents who collectively share a deep belief that Fernald should long- be with developed manner efficient in economically and an environmentally making, Waltham is through well the Commonwealth positioned disposition regulatory to process the of transfer potential The legislation. pending with coupled acquire Fernald land to the City of Waltham would allow the city to the develop Fernald parcel according to desires its and own thus presents prerogatives an and opportunity for an innovative The for Fernald school and facility Developmental care managed and Center, owned Massachusetts a Commonwealth of developmentally disabled individuals, is located in northeast Waltham. The Commonwealth seeks to surplus and transfer its few remaining state mental includes hospital Fernald. properties, After which ten years of state agency decision land and presents a rare opportunity community in the City of for Waltham, Massachusetts: a chance the surrounding to absorb a significant parcel of land and transform it into a new community asset while preserving its historic resources a fair and transparent public process. and negotiating Within 128 corridor of the Boston metropolitan area future. uncertain an with land underutilized of 2011) (DCAMM is 176 acres The Fernald Developmental Center occupies this parcel of LEXINGTON

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N Miles 0 0.75 1.5 3 4.5 6 Figure 1: Map of Fernald Development Center’s regional context. Data: MassGIS. 13 VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER 2 The residents of Fernald are protected by a class-action lawsuit filed in

2 1973 and resolved in 1993 that guarantees them the right same to care quality of or the better than what present they litigation revolves around receive the interpretation and at determination of Fernald. Much of the quality the of care and the extent to which the guardians of patients who have been, or are anticipated to be, transferred out of Fernald believe the 2013). (Ansberry care better or equal providing of capable are facilities new al. 1999). Many of the severity remaining the to due care and patients treatment of level high a in required state facilities or chronic nature of facilities such as the Fernald Development their Center continued illnesses the in found and be not could that services intensive the provide to conditions, and 2003, February In 2013). Ansberry 2009; (Reardon community Governor Mitt Romney declared the Commonwealth would close Fernald, which triggered an such of role the regarding debate public sparked and citizens outcry from concerned institutions and the quality of 2003; care Telegram they provide & treatment under (Hammel remain Gazette residents ten than fewer 2003). though open Today, Fernald remains as the Commonwealth and the residents’ guardians are litigation. in Fernald is officially closed to the public and the majority of the site remains unused, although several buildings operate listed is site The residents. remaining the for facilities care as on the National Register of Historic Places and contains two historic additional two and buildings historic 44 sites, historic structures (MHC 1993). These buildings were erected in two distinct periods in the school’s history. The work of noted Between Between 1960 and patient populations plummeted from 1985, around 20,000 to 2,000 Massachusetts in State a Hospital process known as deinstitutionalization (Rochfort et

1 Fernald Developmental Center in Waltham, Massachusetts Waltham, in Center Developmental Fernald This information was derived from the Massachusetts Department of

SITE DESCRIPTION SITE the local community (Stanley 2014). 1 Revenue Division of Local Services Municipal Databank (see references.) for direct public use or enter process for into anything other than a direct public competitive use since proposal it is being surplused by the state. Currently, the city of Waltham is among three communities (Medfield, Waltham) for which Westborough the state is proposing a and land disposition strategy that would effectively transfer surplus state land to significant buildings on 176 acres (DCAMM 2011), the site is considered the largest contiguous land parcel in the city and surrounding communities that is available for development. The Commonwealth of Massachusetts owns and the manages land and according General to Laws, the Chapter city has 7C an option of to purchase Massachusetts the land The is a residential mental and/or treatment physical developmental hospital disabilities. With 73 for individuals with rate of the 24,926 housing units. For 2014 fiscal year, Waltham year, fiscal 2014 For units. housing 24,926 the of rate has the fourth lowest residential tax levy, by percent of total levy, in Middlesex County, behind Cambridge, Burlington. In addition, it has the second highest commercial Everett and tax levy, by percent of total levy, in Middlesex County, behind only Burlington. downtown downtown Boston and is considered Waltham that indicates data among (2014) Census U.S. suburbs. ring Boston’s first is comprised of 13.6 square miles and a population of 60,632 residents as of 2012. Median household income for that year was $72,332 with 10.9% of residents living below the poverty ownership home 48.8% a indicates data census same The line. THE FERNALD WORKING GROUP Our partner in this study, the Fernald Working Group, is a coalition of Waltham community members and residents who FERNALD desire a community-based proposal for the redevelopment DEVELOPMENT of the Fernald Developmental Center. Though the interests CENTER of the group vary, there is general consensus among the FWG that future development should focus on open space, affordable housing, and concern for remaining residents. The group seeks to ensure that a sustainable, multi-purpose development strategy is adopted for the site. The most recent articulation of the FWG vision statement expresses a desire to pursue community goals which tie into the history of Waltham, including:

N Miles 1. Preservation of services for the community 0 0.05 0.01 0.2 2. Creation of new affordable housing Figure 2: Fernald in the context of the surrounding community. Data: 3. Preservation of historic buildings MassGIS. 4. Brownfield restoration 5. Stimulation of small business Boston architect William Gibbons Preston defined the first 6. Expansion of Waltham’s open space and greenways period, where between 1888 and 1907 twenty major buildings 7. Transportation linked to development were constructed in the Romanesque Revival style, beginning with the first female custodial wards in 1889. The second major After developing the broad goals outlined in their vision period of building construction occurred in the depression statement, FWG held regular meetings and informational years between 1931 and 1934. The architect Clarence P. Hoyt sessions with local stakeholders in order to build and maintain designed a new administration building and several wards good communication and relationships. After several years and maintenance facilities in the Colonial Revival style (MHC of inactivity regarding the sale and disposition of the site, 1993). Several of these structures have been abandoned or the FWG agreed to refocus their efforts on specific issues neglected and are in various states of disrepair. The buildings for which they believed there was broad consensus and that in the poorest condition appear to be those that comprised had become, or were likely to become, impediments to the the original campus and have the greatest architectural successful transfer, integration and reuse of the site. significance (MHC 1993). Considerable work has been done to inventory and document the historical significance of the Fernald buildings. 15 VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER Figure 3: Aerial view of Fernald site. Source: Massachusetts Executive Office of Transportation, Waltham Planning Department. Office of Transportation, Waltham Figure 3: Aerial view of Fernald site. Source: Massachusetts Executive Figure 4: One of the buildings at Fernald. The buildings are in various stages of deterioration. Source: Daderot. 17 VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER of the main obstacles preventing the decommissioning overing, or “daylighting” the culverted stream, which runs which stream, culverted the “daylighting” or overing, order to prioritize the preservation of historic buildings ASSESSING THE CONDITION OF THE HISTORIC BUILDINGS HISTORIC THE OF CONDITION THE ASSESSING ASSESSING THE GREENE BUILDING FOR POTENTIAL USE AS A FULL!TIME RESIDENT CARE FACILITY RESTORING AND IMPROVING THE EXISTING FLOWS WATER SITE THE ON confines of a semester-long project. of the site has been the abundance of therapeutic resources, including the pool, located in and around the Green building complex. By concentrating the residents and resources into the of parts other surplus to possible be might it location one process. site and speed up the disposition Building on these issues, our team developed a more limited scope of work that would advance the FWG aims within the Unc from the northwest to the southern border of the property, could help alleviate the flooding of which has neighboring become a recurring problem, and help restore the properties Oaks Road. wetlands near Waverly In comprehensive a site, the of integrity historical the retain and building assessment could help determine where to invest future redevelopment. resources and leverage funds for One Western Greenway is a linked series of trails and open FWG approached Tufts University’s Department of Urban of Department University’s Tufts approached FWG s plant provides heat to the majority of buildings on the site the on buildings of majority the to heat provides plant s TUFTS INVOLVEMENT DECOMMISSIONING THE ON!SITE POWER PLANT EXPANSION OF THE WESTERN GREENWAY WESTERN THE OF EXPANSION Thi and accounts for a large proportion of the annual operating specific heating with plant the Replacing facility. the for costs to occupied buildings would mean significant savings to the Commonwealth and allow for remediation activities. the start of environmental considerable agreement among neighboring regarding communities the value of the Greenway expansion through the Fernald site. and the need for its The spaces assembled from various land parcels in surrounding the region Fernald. The Greenway extends Lexington into and parts Belmont and of is open to the public. There is the Fernald site. This student-led project grew out of those conversations. FWG identified the following five issues that they believed intersected with the broader interests of state, helpful be could therefore and stakeholders local and regional in building and strengthening relationships as they seek to fulfill their vision. The and Environmental Policy and Planning (UEP) to assist them with specific planning objectives related to their vision and the perceived impediments to a successful development of DEVELOPMENT OF RESEARCH QUESTIONS GOALS In developing the scope of this project, we considered whether The goals of the project are to understand current conditions Fernald was following a path similar to that of other sites that of the Fernald site, to research past efforts of integrating had undergone the processes of disposition and reuse. We similar sites into communities, and to distill the information also questioned why the disposition process appeared to be into meaningful content for the Fernald Working Group. so complex and how sites like Fernald could benefit from From there, the team will recommend next steps for FWG a deeper exploration of the common issues involved in the as the City of Waltham prepares to receive the land parcel transfer and reuse of these unique publicly-owned properties. under the ongoing Sale Partnership Model (Stanley 2014) Three questions emerged to guide our research: negotiations with the Commonwealth of Massachusetts.

1. What are the common issues in repurposing and developing large institutional sites that have outlived their original purpose?

2. What are the interests and values of local and regional stakeholders concerning the Fernald property?

3. Given those common interests and values, what strategies and processes can be applied in the reuse of the Fernald property? 19 VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER next section of the report presents an historical context STRUCTURE OF THE REPORT THE OF STRUCTURE stakeholder interviews-are presented. The report ends with recommended next steps. the team’s conclusions including covered include the disposition of institutional sites, adaptive reuse, community involvement similar in sites, managing the brownfields in redevelopment the and reuse mothballing. of process, An explanation of the follows the literature review. research Subsequently, the analysis and methods results for each of the methods-surveys, meta-analysis and The that framed our research and academic existing of findings the presents report the context, analysis. After establishing literature as it pertains to our research questions. Topics 2. CONTEXT

21 / HISTORICAL CONTEXT 21 / SOCIAL, POLITICAL AND ECONOMIC CONTEXTS 21 VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER primary consideration are the social and professional SOCIAL, POLITICAL AND ECONOMIC CONTEXTSECONOMICAND POLITICAL SOCIAL, mental illnesses and whether resources should be expended on facilities for the cure of mental illness or the long-term care of patients. Thomas Story Kirkbride, the superintendent of the Pennsylvania Hospital for the Insane and the founder of Association of the on ideas his published (AMSAII), Insane the Medical for Institutions Superintendents of American Figure 5: A boys’ dormitory at Fernald when the city was known as Waverly. as known was city the when Fernald at dormitory boys’ A 5: Figure Source: Rootsweb.ancestry.com. Of contexts concerning the Both treatment of them. mental illness defining and the in played institutions state that role central the intimate physical world of patients, residents and staff, and the outward public face of the places that represented them were consciously architecture imbedded of in state institutions the for mentally landscape disabled. the Fernald was designed and treatment and built at a of time the when considerable debate surrounded the treatability of nald assumed its first form in 1848 when Samuel HISTORICAL CONTEXT treatment centers present us with many unique features that features unique many with us present centers treatment deserve considerable attention. that built them and struggled to keep them going in the face facilities These forces. economic and political, social, broad of are much more than simple on large agglomerations parcels of of land; buildings they heritage are and community repositories history, of and cultural though in state-run sites, industrial and some institutional other parallel they ways However, there are several historic considerations that are important to this analysis. The following ground a discussion of Fernald in the idea section that its future use seeks to depends in large part on public perception of premise its past. is The that the appearance and function facilities reflect the of values of the state communities and societies care asylum ward on this site. In 1889, the first female custodial facility (MSFM 1889). cases were transferred to the new The history of the Fernald documented and this report does not intend to provide Developmental detail Center is well that is readily available elsewhere (Daly 2014, MHC 1993). By 1887, the school’s population had grown to 231 number and of the new applicants routinely surpassed the number of patients discharged into the community (MSFM 1888). In 1888, under the direction of the third superintendent, Walter E. Fernald, land was purchased from the Warren estates and Bird in Waltham and construction began on the first Fer Gridley Howe founded the Feebleminded Massachusetts in South Boston. School The school for accepted pupils the from across Massachusetts and even neighboring states. Civil War had ended and was accompanied by unprecedented urban growth. Policies designed to strengthen the principles of an industrial free-market, such as the Homestead and Morrill Acts of 1862, fueled territorial expansion from the north, generating enormous wealth in the Northeast and Midwest (Arrington 2014). This gave rise to both private and public investment in civic amenities. The proliferation of state mental hospitals under the Kirkbride plan was a reflection of an industrial dedication in the application of scientific principles to the problems of mental illness as well as the wealth necessary to build such prominent monuments dedicated to social welfare (Yanni 2007).

It is not an accident that the rise of the land grant universities parallels that of the Kirkbride hospitals; both institutions were revered as great civic amenities (Yanni 2007). Kirkbride hospitals, with their expansive manicured grounds, well-lit and breezy wards, and an optimism that such surroundings Figure 6: 1857 photo of Fernald when it was known as the Massachusetts could assuage the mental anguish of an increasingly School for the Feeble-Minded. Source: Harvard Art Museums/Fogg Museum industrial and frenetic society were as much a product of ebullient economic growth as they were of the medical and technical innovations that grew out of the war itself. Despite physical organization of mental hospitals in 1854 (Kirkbride their often bucolic settings, Kirkbride hospitals were typically 1854). The basic plan called for a linear series of connected built in prominent locations with beautiful views and ample treatment wards built around a central administration breezes. Many could be seen and admired from a distance. building to allow for easy access, proper ventilation and However, almost as soon as these facilities were built, they abundant natural light. This arrangement rapidly became were subject to incessant budgetary pressures and an ever- the standard for the design and treatment of the mentally ill increasing demand for treatment. Kirkbrides were typically (Yanni 2007). This ubiquitous and monumental architecture built to accommodate between 250 and 500 patients, but soon of the Kirkbride plan hospitals had its foundations in a faced overcrowding. These structures took years, sometimes philosophy of curative, or “moral” treatment and was rooted decades, to plan and construct and required an enormous in the ascendant industrialism of the nineteenth century. The commitment and expenditure of public funds. booming economy of the northern states continued after the 23 VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER came to be known, was characterized by a loose configuration loose a by characterized was known, be to came of individual buildings, some of which were self but many contained, of which were part of a larger campus. The model is also closely associated with the rise of women’s colleges in the Northeast, most notably Mount where Holyoke and smaller Smith, individual facilities could serve immediate Fernald was established during the transition era. to The this new treatment philosophy and embedded systematic configuration in of the the Kirkbrides was rational discredited largely for a more informal model based on community care; the idea that the disabled would better recover or live higher quality lives in a it as plan, cottage The one. real simulate to tried that environment world setting, or at least an the mental health treatment and profession’s the extent to reassessment which patients could of members productive as communities their to returned and of be cured moral society (Yanni 2007; Payne and Sacks 2009 ). moral treatment. European immigration, a series of economic of series a immigration, European treatment. moral recessions in the last quarter of the Nineteenth Century and the increasing difficulties of life in the growing industrialized demise the to contributed that factors all were centers urban of the Kirkbride model. Issues of overcrowding, diminishing resources, and administrative pressures occurred alongside Though construction Twentieth of Century, this often had Kirkbrides more to do with the process of funding, continued planning and long constructing these massive into facilities the than a lasting commitment to the philosophy of Figure 7: An example of the Kirkbride plan. Source: kirbridebuildings.com. Figure 7: An example of the Kirkbride plan. modeled the Fernald campus on the meandering walkways and nature paths that Frederick Law Olmsted designed for McLean Hospital, located a mile away across Trapelo Road in Belmont (MCH 1993). The Romanesque Revival architecture of Preston’s buildings resemble the style popularized by Henry Hobson Richardson, who worked closely with Olmsted on several projects, most notably the Buffalo State Hospital complex (Krieger Sieniewicz 2009).

Figure 8: Willard State Hospital. Source: kirkbridebuildings.com Despite the shift toward custodial care the Fernald School remained dedicated to a philosophy of rehabilitation through manual training and developed extensive programs in needs at a low cost, allow for future growth and help ease the manual arts that were nationally and internationally the burden of administration and surveillance (Yanni 2007). recognized for their innovation and success (MHC 1993). The Willard State Hospital on the shores of Seneca lake in Fernald resembles a university campus or small town largely upstate New York was one of the first of the state asylums because it functioned in much the same way (see Figure 6). where chronically ill patients were moved to secluded rural Students at Fernald took part in manual training and the areas for long term custodial care. Willard also represents day-to-day operations of the facility (Daly 2014). This routine, one of the first facilities in which the therapeutic rationale for labor and socialization associated with manual labor and the architecture fell away, and the Kirkbride model, though training would eventually come to be viewed as cruel and still present, began to shift to a more dispersed collection of inhumane treatment, but Oliver Sacks points out that, even smaller buildings (Yanni 2007). though abuses of this system were to become commonplace, the enactment of laws in the Twentieth Century prohibiting The design of the original Fernald campus represents a the employment of patients in manual labor took away the conscious shift toward custodial care and a transitional one authentic tool for the long-term treatment of patients and architecture that sought the logic and economy of incremental had a drastic effect on patients quality of life, and the self- development of several purpose-built structures. Retaining sufficient model of state hospitals that did everything from some of the grandeur of the earlier Kirkbrides, yet on a producing their own food to making their own clothes and more intimate scale, the Fernald buildings are somewhere tools, disappeared (Payne and Sacks, 2009). between Kirkbrides and the full realization of cottage plans still to come. While Willard State Hospital was a direct inspiration for the plan of Fernald, it is also generally believed that the original architect, William Gibbons Preston, 25 VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER there are assets and opportunities. explores some of these issues as they pertain to the The reuse of following section these institutional sites. Our research indicates community that has largely Fernald’s been restored reputation and has viewed in come to as be the serving an community. However, decades important of neglect, rising operational function in costs, the and a broader continued trend toward community produced care a have site with as many liabilities and challenges as on the property were emptied renewed out investment in the and 1970s and 80s would fell reestablish into disrepair, Fernald as a state-of-the-art facility with the ability to treat and care for the most severely disabled. been at the center of the eugenics movement in the U.S. at the the at U.S. the in movement eugenics the of center the at been accepting of practice questionable the and century the of turn students with no apparent disabilities would cast a students the shadow that revelations later would as institution, the on for will their against compounds radioactive to subjected were buildings older the as But 2014). (Daly purposes experimental massive state hospital systems dried up and many hospitals acquired the image of wards back neglected of conditions abysmal inhumane the in languished facilities where patients 2009). (Payne and Sacks having reputation, similar a acquire eventually would Fernald With the rise of psychoactive drug treatments in the and 1950s the beginning of deinstitutionalization, many patients custodial were caught in care and the need to provide the long-term services for patients debate between whose community ailments were difficult were to introduced into the community treat. system, funding for the As more patients 3. COMMON ISSUES IN REPURPOSING SIMILAR SITES

27 / BROWNFIELDS 28 / OPEN SPACE 30 / MOTHBALLING 32 / ADAPTIVE REUSE 33 / ACKNOWLEDGING AND ADDRESSING THE PAST 27 VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER service provision (e.g. flood control, wetlands); and (7) overall (7) and wetlands); control, flood (e.g. provision service ecological improvement (De Sousa 2004). long- emphasize that strategies Preserving use “land as seen are spaces open term sustainability goals rather than unrestrained economic growth and resource expansion” and thus are an important consideration in sustainable development (Dorsey 2003). attract private-sector investment, generate new employment opportunities and create municipality’s opportunities tax base for (De produce could redevelopment brownfield cities, 231 of survey expanding Sousa 2004). a According to over 550,000 a new jobs and additional tax up revenues (US to Conference of $2.4 Mayors, 2000 billion as cited in Dorsey annually 2003). However, there is a growing dichotomy in between redeveloping industrial purposes and brownfields conserving brownfields as green or detail greater in for discuss we that use beneficial a spaces, open commercial or in the following section. The latter trend is gaining popularity especially in Europe: between 1988 and 1993, redevelopment focused on sport and recreational uses Scotland; in 21 percent England of redevelopment was and devoted to open in (De Sousa 2004). space, recreational and leisure uses Remediating brownfield sites to economic open benefits in space addition to has improving the its state environment of and own enhancing quality the of life. Among these are: (1) cost avoidance related to urban sprawl and infrastructure in increase an through opportunities investment (2) provision; property values; (3) the regeneration of local economies; (4) tourism enhancement; (5) farmland preservation; (6) hidden Redevelopment Redevelopment of urban economic by driven mid-1990s, the since activity brownfields revitalization has been a opportunities major (De Sousa 2004). Remediating brownfields Fernald reuse process began in 2004 with the establishment establishment the with 2004 in began process reuse Fernald wnfields are defined by the U.S. Environmental Protection Environmental U.S. the by defined are wnfields BROWNFIELDS OVERVIEW today are often identified as brownfields due to environmental to due brownfields as identified often are today operation the in used were that materials from contamination of these power plants and in construction of other buildings on the campus. Among these contaminants are asbestos and lead. Bro improvement or development the property, real “idle as Agency of which is impaired by (Hollander real 2010). or entire perceived Given the served that plants contamination” power on-site their had often hospitals self-sufficient nature, state campus, as is the case at Fernald. Sites undergoing reuse open space, the importance of structural preservation as a precursor to reuse, and issues related to the stigmatization institutional sites. associated with repurposing these preceding chapter, while some stem from the bureaucratic process governing the disposition and transfer of state land to another public or private entity. In this section, we explore literature that details the common issues and best practices in state hospital reuse. We highlight environmental concerns of brownfield remediation, the benefits and possibilities of Capital Asset Management and Maintenance (DCAMM). Capital Asset Management Fernald, like many other state institutional facilities, complex faces environmental, physical, Most and social of challenges. these operational factors challenges related to the stem site, as from described in the the historic and The of an advisory committee authorized by the state to engage the local community with city and state officials to inform the decisions of the state Commissioner of the Department of REDUCING BARRIERS TO PRIVATE REDEVELOPMENT CONNECTING REUSE TO BROADER COMMUNITY GOALS Liability for contamination Environmental, health, and safety protection Uncertain cleanup standards Targeted jobs and training Availability of funding for redevelopment Central city revitalization/reduced sprawl Complicated regulatory requirements Meaningful community participation Table 1: The brownfields dual land-use policy challenge. Source: McCarthy 2002.

The process of redeveloping brownfields is characterized by OPEN SPACE the challenges of meaningful community engagement and Mental health professionals of the 19th and early 20th century participation. While redevelopment often focuses on purely considered the grounds of mental institutions to constitute a economic factors, communities may have broader needs and significant component of treatment. This role stemmed from values, including environmental justice, regional land use the belief that a therapeutic environment could improve the and environmental quality (McCarthy 2002). An example is mental health of the patients (Hawkins 1991). So integral the argument between brownfield redevelopment towards were therapeutic landscapes that some institutions recruited commercial uses and open space protection. Deciding between nationally famous landscape architects like Frederick Law the two uses (or a balance of the two uses) is ultimately a Olmsted who designed for asylums such as the Buffalo reflection of a community’s values in regards to their vision for State Hospital (Krieger Sieniewicz 2009). In many cases, the the future of the community. This example offers challenging landscaping represents an asylum’s history as strongly as the views of long-term sustainable development and smart structures and should thus be preserved with equal vigor. growth and the fiscal opportunities presented by increasing a municipality’s tax base through commercial development. The asylum grounds provided a tranquil sanctuary for the The tenuous relationship between private development and patients. Asylum architects tended to favor hilly or ridged community goals is described by McCarthy as the “dual land- terrain, elevated and removed from population clusters, as use policy challenge” (2004, 288). locations for mental hospitals. These sites maximized vistas and breezes (Bunnell 1992). Asylum grounds incorporated sweeping lawns, curving roads and pathways, and groomed plantings and trees (Krieger Sieniewicz 2009). The grounds offered space for both enjoyment and work (Hawkins 1991). 29 VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER campuses to neighboring properties, acting not separation as between a the hard two but as and a paths gentle additionally buffer. contribute Trails to the the community by integration allowing pedestrians within and bikers to easily access the site. Leaving other space as unprogrammed allows for flexibility and adaptability in function. The wants of the land residents. Residents can shape the green space can respond to the network according to patterns of use, which strengthens the the therefore and network the and users between relationship integration of the site and the community. This additionally allows a public open space to convey benefits to users most (Rodgers 2005). effectively and supports wider inclusion Physically, Physically, open space encourages integration by providing a transition among different land uses. Utilizing open space along the property’s edge can more smoothly connect sense of ownership and oppose plans that encroach on the natural landscape. redevelopment helps to 2006). Implementing stabilize open space the as interim property or permanent” “potentially (Mallach use can the planning foster process. The community risk exists, introduced as participation a however, public resource, open that space proves difficult in once to reclaim for any alternative use. The users may develop a the site with the community (Joseph et al. 2013). Opening the asylum grounds allows the public to engage with the campus understanding expanded An possible. previously not level a on of the site can reason, catalyze preserving open further space public first before interest. comprehensive For this landscapes can now provide a model for future open space in space open future for model a provide now can landscapes both plan and remaining plantings. In terms the attracts that asset an creates landscape the rehabilitating of the public development to the campus. This serves to drive the process, integration of preserving or that today campuses introducing present new open substantial space to resources the where public. surrounding for In many municipalities cases and been metropolises developed, have asylum grounds now undeveloped land. represent Though perhaps a lacking care rarity: in the last few decades, the remnants of the once carefully tended Physical Physical laboring health, in bodily patients’ the improved it as outdoors treatment, of constituted component a significant help to fill a strictly regimented schedule, and contributed to the asylum. the operations of The historical importance of asylum landscapes means MOTHBALLING DOCUMENTATION 1. Document the architectural Vacant buildings are often present on contaminated land and historical significance of such as brownfields. Fundamental to the issue of reuse building is the condition of the physical asset(s) in question. Vacant 2. Prepare a condition buildings often present the most vexing problems because assessment of the building even benign inattention and neglect can quickly lead to substantial deterioration. Buildings that have been vacant and STABILIZATION 3. Structurally stabilize neglected for decades often deteriorate to the point where the building, based on a extraordinary methods of stabilization and repair have to be professional condition employed in order to salvage the structure. In a technological assessment age when both traditional and modern methods are available, 4. Exterminate or control pests nearly any building can be salvaged or rebuilt; the question (termites, rodents, birds) becomes whether it is desirable or feasible. The building 5. Protect the exterior from materials, methods of construction and the nature and extent moisture penetration of deterioration are the three primary factors in evaluating the physical ability to salvage and restore vacant structures. MOTHBALLING 6. Secure the building and its component features to reduce Building control is a reuse component wherein the process of vandalism or break-ins mothballing occurs. Mothballing is simply the physical process 7. Provide adequate ventilation to of stabilizing a building. Various reasons guide planners and the interior preservationists to mothball buildings. Sometimes called 8. Secure or modify utilities and stabilization or deactivation, mothballing should be used as an mechanical systems interim solution when there is no agreement on the future of 9. Develop and implement a building but demolition has not been determined (Burchell maintenance monitoring plan and Listokin 1981). Mothballing is also a stop-gap method to for protection protect vacant, historic buildings that allows for the planning and funding process to continue (Burchell and Listokin 1981). Table 2: Nine steps recommended by the National Park Service for Finally, buildings are mothballed to secure them if deemed property control. unsafe by building inspectors, to mitigate vandal risk or to prevent further decay due to exposure (Burchell and Listokin 1981). 31 VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER Manage buildings which cannot be made attractive to new private owners and dispose of those which can Prepare all surplus sites for one of the active or passive revitalization strategies Develop a set of procedures or Develop a set of a plan to guide action(s). of the Assess the magnitude inventory (local) problem via and inspection. distressed Seek to control the interim properties, to make those repairs or to demolish structures, which are beyond repair. ǩ ǩ ǩ ǩ ǩ SPECIFICALLY DEEMED CRITICAL ARUTO SUCCESS PLANNING PROPERTY CONTROL PROPERTY MANAGEMENT PHYSICAL REVITALIZATION COMPONENTS OF OF COMPONENTS ARU Table 3: Four components that contribute to the overall success of a to the overall success Table 3: Four components that contribute 1981. reuse project. Source: Burchell and Listokin demolition, a second incentive to defer immediate destruction destruction immediate defer to incentive second a demolition, 1994). (Rypkema assets future become could that buildings of tentative, structures are first stabilized but later demolished available and campus the of evaluation intensive more a after uncertain of face the in Nonetheless, 2005). (Cantell resources plans for for potential development, greatest the maintain to as so possible whenever stabilization should be the campus (Cantell 2005). Stabilization often costs less than pursued the building for future reuse. as This possible, should even before occur any as site, concrete soon so plans as to exist protect all for potential uses the of all the campus. stabilized Not buildings eventually undergo adaptive In some reuse. cases, when development plans remain extremely and management program (Cunningham 1987). However, a long-term reuse plan must be in-place as a vacant boarded up building will not survive indefinitely. Stabilizing and mothballing marks a crucial step in the reuse process as it prevents further deterioration and preserves Table 2 outlines the recommended three by phases the and National supporting control Park (Cunningham 1987, Page steps Service 2). Mothballing efforts can for property secure a building for up to monitoring a 10 as years well as if repairs done necessary upfront correctly the which includes As in other components of the critical. reuse process, The planning National is Park Service, that the manages regulatory the agency National Registry a hiring of recommends registered, are buildings Fernald which Historic Places, on preservation specialist to assess building specific needs and appropriate mothballing techniques. to recommend the ADAPTIVE REUSE Adaptive reuse should reflect as many aspects as possible of the building’s historical significance. Often, developers After the completion of stabilization, determining the future preserve an exterior while gutting the interior (Ward Jandl of the buildings emerges as the next priority. Adaptive reuse, 1992). Doing so removes context and thus a layer of history. renovating historic structures for new uses, can transition the Moreover, this destroys the more private history of structure assets of the past into valuable contemporary uses. Adaptive and the narratives of those individuals that resided there reuse is both a concept and a process. Generally speaking it (Ward Jandl 1992). Unfortunately, some floor plans or interior is a sophisticated, comprehensive set of collective activities designs such as prison cells or patient rooms, cannot be (process) used to deal with surplus or abandoned properties reconciled with new uses. (concept) (Burchell and Listokin 1981). While any of the following activities may be put into practice by a municipality Although adaptive reuse can be a costly process, a number of or for a specific building, the four components in aggregate, fiscal incentives exist to spur historic preservation. Securing (see Table 3) contribute to the overall success of a reuse tax credits greatly improves the affordability of adaptive reuse project (Burchell and Listokin 1981. (Rypkema 1994; Ward Jandl 1992). If it coincides with other policy priorities, the project may even be eligible for additional Adaptive reuse is a time consuming process, and may involve tax credits, for example brownfield redevelopment or significant human capital and financial costs. As such, few affordable housing (Cantell 2005; Rypkema 1994). Currently, municipalities articulate or execute such an integrated the Federal Historic Rehabilitation Tax Credit program can strategy-as above-due to one or more of these limitations. cover up to 20 percent of qualified costs associated with a The planning stage is the foundation of such efforts as it is historic project (NPS 2012). Low Income Housing Tax Credits the phase to define scope, stage comprehensive tasks, and provides a tax credit of 9 percent for otherwise federally determine interdependencies, all of which contribute to subsidized projects (HUD). In certain targeted economic operational efficiencies (Burchell and Listokin 1981). In the development areas the Brownfield Tax Credit Program offers initial stage of planning, the process of physical assessment up to a 50 percent reduction (Cantell 2005). and inventory of buildings and land, permit a team to consider mitigation strategies for common issues in the reuse of the Spillover effects also lessen the economic costs of adaptive built environment and land. reuse. Preserving historic resources contributes to quality of life, a proven generator of economic development (Rypkema In pursuing adaptive reuse, balancing history with the future is 1994). The value of abutting or neighboring properties often key. Designs should consider both what the building has been rise in the wake of historic preservation projects (Rypkema and what the building can become (Cantell 2005). Historical 1994). A stock of historic assets increases a city’s ability to assessments should consider the structure itself, the people compete against other municipalities in attracting residents it served, and events that occurred on site. and businesses (Rypkema 1994). Additionally, historic 33 VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER play a key role in shifting public opinion. These efforts should efforts These opinion. public shifting in role key a play 2006). (Mallach scale regional and local a both on executed be But after stigma is alleviated, the past--even the less savory parts--should not be a ignored. balance Development between must remembering” strike “strategic (Joseph forgetting” et al. achieve and to helps uses, previous of reminders physical specific 2013). “selective Memorialization, site this. The preservation of historically significant is structures just one landscape example or erecting of new monuments trigger memorialization. can remembrance. also None Restoring serve of to these, the however, remembrance, which depends on the overall context (Joseph guarantee et al. 2013). For adaptive reuse process example, that preserves only the architectural a building that significance undergoes and an neglects the historical all connection significance to its loses past and consequently loses its to power memorialize. Respecting the past while creating a future for the site requires careful consideration when planning for reuse. fortunate fortunate (Bunnell 1992). With their wealth of historical and again once to potential the hold campuses resources, natural occupy a space of community pride. Marketing and branding ay, with the promulgation of deinstitutionalization by the ACKNOWLEDGING AND ADDRESSING THE PAST recruitment of famous architects and landscape architects to architects landscape and architects famous of recruitment carry out these projects attest to this. Asylums conveyed less the aid to desire a and spirit, public a optimism, of sense a the campus as a historical and community asset. The site’s contemporary narrative should be the positive side shaped of asylum history. to During the Reform emphasize Era, the time of construction of many institutions, asylums were sources of community pride. architecture, The the sweeping grandiose manicured landscapes, monumental and the can stall or even halt the redevelopment process, especially if plans strive to explicitly preserve the campus and facilities. Campuses unable to overcome a negative reputation face complete demolition or abandonment. often Appropriate marketing and branding, however, can recast mental health community and the controversies, asylum campuses carry a scars level of stigma that of mistreatment may influence the reuse hospitals state of process grounds and (Joseph facilities the reimagining et some, al. 2013). For as attractive and welcoming proves difficult. These doubts renovation of state hospital facilities. renovation of state Tod preservation preservation requires more labor and thus creates more jobs during the than construction process. new construction Moreover, more of the money spent on historic preservation projects stays in the community the (Rypkema economic, 1994). social, Jointly, and reuse represent strong historical arguments for the preservation benefits and of adaptive 4. ENGAGEMENT OF STAKEHOLDERS

36 / COMMUNITY PARTICIPATION 35 VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER discussed in the previous sections, institutions such as OVERVIEW engage the public early on in an open and proactive way. engage the public early on in an happen. Nor does taking part in an established process that is that process established an in part taking does Nor happen. meant to be responsive to community interests. This section outlines the issue of community participation as it pertains to some of the issues discussed especially participation, of in levels different between chapter distinction 3 and draws a help that procedures municipal of design the concern they as the planning process and help determine community- a for advocates FWG patterns. use the land changing trajectory of principles development sustainable on draws that plan based and hinges on an ability to access the a planning positive process and meaningful in way. However, simply advocating for a meaningful public process does not ensure that it will sites from the direct developmental pressures experienced by the neighboring communities. The potential transition of the Fernald Developmental Center from a state run institution to an integrated community asset raises many questions about how the community can access in which they belonged. They housed and treated many local residents as well as provided jobs and a However, despite sense these of close economic identity. and social ties they remained isolated, with separate operational from local government and authorities control. In many ways, distinctly these exempted relationship this exception, no is Fernald and As Fernald evolved according their own disciplinary logic needs, and and yet were at the These mercy institutions of were broad closely social linked trends. to the communities COMMUNITY PARTICIPATION Community-driven processes promote familiarity and ensure that the development will be used by local residents, which Public policy processes have been identified as an important drives integration of the site into the surrounding community. component of public decision-making, but effective In contrast, isolating the community in the reuse process implementation is elusive. Sherry Arnstein’s (1969) “A Ladder could lead to a site that does not complement nor engage with of Citizen Participation” summarized the typical processes, its setting. As an important first step, the community must be which range from “non-participation” to “tokenism” and aware of the campus and its potential. Often, the majority of finally “citizen control”. Several studies have emphasized community members lack an accurate conception of a site or the importance of meaningful engagement with the public its resources for several reasons. Restricted access to asylum in ways that are accessible and that encourage constructive campuses limits the public’s engagement with the site. Or, feedback (McCarthy 2002; Hollander 2012). Public notification, stigma and negative conceptions of mental health institutions timing of events, language and method of engagement are all discourages the community from seeking opportunities to important factors to consider when eliciting collaboration. engage with the site, even after the operations have ceased (Munoz 2012). Community participation is a challenge, especially in redevelopment processes as it relates to deciding the outcome Designers of the redevelopment process should aspire to of brownfield sites. Although public participation is often seen bring the public to the campus, both physically and socially as a process which slows and complicates the development (Bunnell 1992). Holding group information sessions allows process, it has benefits that can make it “a mechanism developers to disseminate knowledge concerning the history for faster, better cleanup and redevelopment” (Powers of the site, its present conditions, and possible uses. These 2000, 45). According to McCarthy (2002, 294) these benefits sessions may also include mapping and facilitate dialogue that community members can provide are (1) site-specific to encourage participants to share their visions for the site knowledge during site assessment, (2) workers trained (Munoz 2012). Welcoming the public to the campus on certain for cleanup through government-sponsored programs, (3) days allows the visitors to learn more about their site on their employees for new businesses, and (4) a market for new own terms (Munoz 2012). If possible, some light rehabilitation products and services. One particularly effective strategy is of the grounds should occur in advance of the opening to to engage a wide range of stakeholders and establish links improve the appearances and to establish informative signage to foster long-term interaction and development of “mutual that directs the visitors’ attention (Munoz 2012). Both remote commitment” for beneficial action (McCarthy 2002, 294). 37 VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER addressed from the beginning. First clarifying--for both the benefit of the public and other stakeholders--the role of the community and the anticipated extent of their prevents conflicts (Mallach 2006). involvement Communication with the surrounding community clear, must be open and honest community members (Munoz must be engaged 2012). in the development Without process, but question, their involvement introduces possible tensions between the community and planners local government or (Mallach community 2006). and This possibility must be and on-site opportunities to gain a better understanding of the of understanding better a gain to opportunities on-site and site catalyze community engagement. These should opportunities occur repeatedly over time in ownership order of the site, to which encourages greater truly community foster 2006). investment (Munoz 5. RESEARCH DESIGN

39 / EXAMINING COMMON ISSUES THROUGH META!ANALYSIS 42 / UNCOVERING CHALLENGES AND OPPORTUNITIES 42 / FWG SURVEY 43 / STAKEHOLDER INTERVIEWS 45 / ANALYSIS OF RESULTS 39 VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER MOTIVATION To our knowledge, no database complete of the current conditions of state mental treatment or detailed standardized facilities in the U.S. exists, either in its entirety or by region . We hope the information our team assembled through this research will be a valuable investigation of state hospital reuse. resource for future scholarly common issues and theoretical shared in considerations the generally disposition and sites. We reuse then moved of to the examination large of political, empirical the reflect institutional better may that data, data regional specifically, geographic and development pressures common in the New England area. Meta-analysis was chosen examine a large amount for of data quickly and identify possible its ability to relationships between variables. The literature helped shape our choice of variables. Our meta-analysis seeks to that identify trends previously among and sites underwent redevelopment through or evaluation a systematic currently of collection empirical included sites the as First, study. this face to contributions several and data. closure The meta-analysis represent concrete makes examples of state meta-analysis supports our hospital literature review, which focuses reuse, the more on the theoretical issues of the process. Second, meta-analysis the aims to create a typology that FWG to can contextualize use Fernald. Last, during the research process sites emerged that may warrant further exploration as case reuse process of Fernald. studies or models for the future faced closure and disposition over the last few decades. As we As decades. few last the over disposition and closure faced have discussed in the two preceding chapters, our approach broad identify to literature existing the of review a with began this chapter we present the structure of our research EXAMINING COMMON ISSUES THROUGH THROUGH ISSUES COMMON EXAMINING ANALYSIS ! META OVERVIEW reuse of Fernald may appear peculiar to Waltham and the site, the and Waltham to peculiar appear may Fernald of reuse the assumption is that these conditions are not unique. With to cuts budget and deinstitutionalization of trends national the state services, numerous state-run treatment facilities have Though the issues regarding the closure, disposition and understand where commonalities and differences may exist. A survey was used to gauge the values and interests of the individual members of our partner organization, the FWG, in relation to the their stated goals. We used gained the from information the survey to identify interview candidates and guides. inform the interview process and to answer our first research question, which looks of outside Fernald to identify common issues in the disposition and reuse of other state schools and hospitals in New England. We used the survey and interviews research to answer question, our which second seeks and values to of local identify and regional the stakeholders interests and to help Three principle methods were used to answer our research questions: a meta-analysis of publicly owned mental-health related institutions in New England, an anonymous survey of FWG members, and stakeholder interviews. Meta-analysis can be used to collect and analyze a succinctly. large The amount goal of of using the data method in this project was In process. We provide detail concerning the motivation behind application and organization the used, method research each of these methods, and the research questions they support. METHODOLOGY First, we determined our selection criteria with the goal of completeness and with consideration of the limited duration of our study, three months. The sample area of the meta-analysis is comprised of the six New England states: Connecticut, Maine, Massachusetts, New Hampshire, Rhode Island, and Vermont. We restricted the type of facility to state hospitals and state schools. The facility must consist of multiple buildings on a multi-acre campus. The facility must have already closed or have a set closing date and dispossession must be achieved or intended; i.e. it cannot be considered an active hospital nor can the site have been transferred to another state use.

Next, www.asylumprojects.org, a website dedicated to historic asylums, was used to identify all state hospitals and state schools in our sample area, a total of fifty-seven sites. This website is dedicated to “the history of asylums in all forms” in the United States and abroad (Asylum Projects 2013, under About Asylum Projects). Asylums in the context of this website may include traditional mental hospitals but also orphanages, prisons or other societal institutions for treating individuals. The nature of the website is collaborative content creation and editing-a wiki. The protocol of a wiki is to attribute information to a source; as researchers we deem it prudent to mention the vulnerability of information on such sites. To our knowledge, no other comprehensive listing of such facilities exists. Our selection criteria eliminated a majority of these, leaving 20 sites for possible inclusion in the meta-analysis. Standard boolean search techniques were employed in a variety of electronic sources to obtain all information of interest for the sites, including: Google, LexusNexus, US Figure 9: State hospitals and state schools considered for meta-analysis. Census Bureau, National Register of Historic Places (NRHP), and municipal websites. 41 VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER relations between two continuous variables, such as acreage and years in transition. whether certain characteristics of the increased the campus likelihood or of setting particular where both outcomes. variables Ordinary of In Simple interest regressions. logit were cases of binary, place the exact took logistic regression Least Squares (OLS) regression was used only to look at the The meta-analysis utilized a number of statistical techniques First, process. reuse the in trends and associations uncover to analyzing basic summary statistics provided context for the sample. We then tested for significant differences in means independent by binning process, the of characteristics across variables. Logistic regression modeling was used to examine committee, citizen group, and redevelopment authority. The adaptive housing, affordable are interest of variables outcome reuse, open space, private developer, property division, and years in transition. These were chosen to align with some of FWG’s primary objectives. From these sources, we collected information on the setting of the facility, its process, campus, and the the dispossession resulting available data, and we outcome. selected a narrowed list reuse of After variables. The reviewing explanatory the variables include population, population density, median household income, cottage plan, NHRP listing, reuse UNCOVERING CHALLENGES AND The 15 members of the Fernald Working Group constituted the survey population. However, not all 15 listed members OPPORTUNITIES: FWG SURVEY are currently active in the organization and thus our true While our first question examines the issue of the reuse of population proved to be much smaller. Seven FWG members state mental treatment facilities from a general perspective, completed the survey, for a response rate of 47%. our second research question focuses explicitly on the Fernald property. The team explored issues specific to To recruit participants, we first introduced the survey at a FWG Fernald through a survey of the FWG and interviews with meeting on February 10, 2014 and informed those present selected stakeholders. that an email would be sent with more information and a link to the survey. An email was sent to all FWG members on MOTIVATION February 20, 2014 requesting the recipient’s participation in The members of the Fernald Working Group represent a broad an anonymous online survey; a link to the survey was included. range of community groups and interests. In recognition of The survey remained open from February 20th until March this diversity, the team decided to survey FWG early in our 3rd, 2014, a deadline set in order to accommodate analysis research efforts to better understand the fundamental prior to commencing the interviews. priorities of the members, both on an individual and at the group level. Our survey of the FWG sought to discover how the Once the survey was closed, the team reviewed the results interests, attitudes, opinions and concerns of the members using Qualtrics. Qualtrics allows survey administrators to are consistent with or deviate from the official FWG vision view each respondent’s completed survey. Qualtrics also statement, to seek elaboration on specific objectives of the compiles all responses into a single document, which proved FWG vision, and to help identify the areas of shared priority. useful for the consideration of closed-form questions (e.g. We utilized the results of the survey to guide and inform our multiple choice, ranking, and likert scales). The team analyzed interviews in order to maximize their relevance to FWG’s the distribution of pooled responses and the implications of priorities. these results. We looked to the open responses for additional insight on the participant’s conceptions surrounding the site. METHODOLOGY The survey was drafted and managed using Qualtrics, an online survey platform. The survey includes a mix of both open and closed questions. Question types include: multiple choice, multiple answer, ranking, likert scales, and free response. The survey is divided into two themes, the FWG Vision and Stakeholder Engagement.

43 VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER The 1 Verbal consent to interview was granted in ten instances. However, Verbal consent to interview was granted

1 that followed the IRB protocol explicit written consent or verbal consent was not granted for two of these. Therefore, even though a conversation took place, no explicit information obtained from these interviews is included in this analysis. primary interview guide (see Appendix E) was standardized based on the application process for the IRB and therefore does not contain questions tailored to specific interviewees. The interview guide sought values through indirect questions to concerning what uses the understand interests subjects thought and were appropriate for the site, what needs they believed the site could fulfill Waltham communities, within what the vision they regional might and have for the site and surrounding areas, and the process through which these goals should be achieved. in The the primary FWG goals vision listed statement that for provided many of the our survey framework questions also formed do often the Interviews interviews. the basis during questions for follow-up not follow the scripted format, and comments and responses may indicate new questions or lines of inquiry (Kvale 56-66). 2007, In anticipation of this we prepared a list of secondary interests known their on based interviewee each for questions or professional affiliations. was shorter than formally anticipated were people and eight the of original total A goal met. of not was 12-16 interviewees interviewed for this study, though the opinions and attitudes of others were considered and in articulating formulating conclusions the and questions recommendations. The original intention of this study was to interview a broad population of stakeholders representing local, regional and state interests. Due to time limitations the interview period munity engagement and participation in the planning STAKEHOLDER INTERVIEWS STAKEHOLDER METHODOLOGY MOTIVATION

the Institutional Review Board (IRB) based on the potential for professional risk if the personal opinions expressed a subject by ran counter to the agency or organization with he or she was affiliated. We were granted approval to perform these interviews by the Tufts University Institutional Review Board on March 26, 2014. research question—What are the interests and values of local of values and interests the are question—What research property?— Fernald the concerning stakeholders regional and established a theme based around interests and values, and interview guides were prepared. Our study was categorized as human behavioral research and subject to a full review by inform the analysis and recommendations of site reuse vis-á- reuse site of recommendations and analysis the inform vis stakeholder interests and values. The interview process used in this seven stages of an interview study inquiry (Kvale 2007, 33-37). The followed Kvale’s semi-structured interviews are a to compelling bring awareness mechanism of the personally project to engage the stakeholders community opinions pertaining to and community projects (Gaber and on Gaber their 2007; interests Kvale 2007). and Our research in the form of stakeholder interviews as a means to team conducted preliminary field 2011; Arnstein 1969; Greenstein Chapter 4, our research seeks to understand the 2004). values and As presented interests of stakeholders pertaining to the Fernald property. in Early inclusion of community the city of Waltham’s intent stakeholders to solicit and include community demonstrates members throughout the planning initiative. Structured or Com process is widely acknowledged in the critical literature to as being the success of a planning initiative (Fregonese Based on our research and conversations with members of Seven of the eight interviews were performed in person and of the FWG we compiled a list of 44 potential stakeholders. This these six were conducted by a single member of the research list included public agencies, private organizations, public team in a professional setting. One interview was conducted officials and local institutions. Individuals were identified by two members of the team in a public setting and other was according to their affiliation with these entities and their conducted by a single member of the team over the phone. status within them. The list was organized according to the The duration of the interviews ranged from approximately relevance of each stakeholder to the Fernald site. These 30 minutes to 80 minutes. The primary recording method criteria included, but were not limited to, institutional was hand written notes, though five of the interviews were abutters and organizations active in the area around Fernald, recorded for future reference. Due to the variety of responses involvement in previous Reuse Committee activities, authors regarding the use of interviewee names in association with of significant reports and studies involving Fernald or the affiliated organizations we have opted to keep the responses surrounding area, the operational authorities of the site, anonymous and eliminate the use of direct quotations. agencies involved in the disposition of the site, and public officials with some past or current jurisdictional authority The meaning condensation method (Kvale 2007, 106) was for a district in which Fernald is located. Through this used to identify and summarize the primary issues, topics, and method we identified 34 individuals whom we believed could opinions discussed in the interviews. A matrix was created provide important information regarding various stakeholder based on these notes in combination with interests and values interests and values. We then prioritized this list according to identified through FWG vision statement and survey results the results of the survey, attempting to represent both local (See Tables 8 and 9 in the next section). A total of ten primary and regional stakeholders, and include representatives of interests and three values were identified. A yes entry in the agencies and organizations directly involved in the primary matrix indicates the stakeholder’s explicit or implied support interests identified by individual members of the FWG. In total for a particular interest or value, whereas a no entry indicates we submitted seventeen requests for interviews and were explicit opposition. An entry of “N/A” indicates that the topic able secure formal interviews with eight individuals.2 was ether not discussed or a conclusion could be reached based on the information provided.

2 Time was a significant limitation in this study. Responses to these requests exceeded eight. Some people declined interviews because they felt a lack of authority to speak on behalf of a particular organization or agency, or a desire to not interfere with an ongoing process. However, even when a person declined an interview this often led us to identify more appropriate candidates, and in most cases we believe that with more time and persistence we would have been able to secure interviews with most of the new and original candidates. 45 VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER stainable development Public participation in the reuse and planning process Public participation and positive process Establishing a proactive Su

2. 3. 1. VALUES he preservation and expansion of open space he preservation development (TOD) Oaks along Trapelo and Waverley Traffic management Roads for the The preservation of existing services developmentally disabled services (veteran’s and The creation of new community senior housing, for instance) buildings and The preservation of the historic landscapes on the site The restoration of brownfield T along the culverted stream that runs The daylighting of of the property the western portion housing The creation of affordable business opportunities The creation of small transportation oriented Transportation and

10. 7. 8. 9. 3. 4. 5. 6. 1. 2. ANALYSIS OF RESULTS OF ANALYSIS INTERESTS 6. FINDINGS

47 / COMMON ISSUES: META!ANALYSIS RESULTS 54 / VALUES AND INTERESTS OF STAKEHOLDERS 47 VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER boards, working groups, etc. than proved either of to the two be formally organized less groups. visioning A group--the common term citizen this document will use to refer to of half than fewer slightly to attached organization--was such the facilities in the sample. number of buildings is 43. number of buildings of date closing the transition--from of length the of range The the state hospital or state school until the new plans for the site are initiated-- is immense, spanning from three to forty years. In most cases, Development a public agency--such Corporation, Corporation as or a Redevelopment a an Authority--was involved in Community the Economic reuse process to some capacity. Development In organizations some helped to shape the reuse plans cases, or acted in an these organizations these sites, few a For role. advisory/supervisory purchased the property responsibility for the development. from the states and held sole Also widely common across are appointed the reuse committees. development The selection processes process participants of is often determined by the state legislature town or governments, which distinguish this type of organized group from volunteer collectives. Citizen-based or volunteer reuse committees, advisory site covers only 30 acres, while the The average parcel largest size measures exceeds approximately 476 acres. 1500. The number of buildings ranges from 20 to 100. The average e than half of the sites of the sample are located in results of our meta-analysis contribute to a general COMMON ISSUES: RESULTS ANALYSIS ! META SAMPLE CHARACTERISTICS on the National Register of variation Historic in size exists, Places. both in terms Considerable of area of the smallest The complex. campus the within buildings of number the and imbalance derives from the inequity in number of the than population--rather by driven states--perhaps across facilities selection process. An overwhelming majority, 80%, cottage plan. Slightly more than of half, 13 of 20, boast a listing campuses follow the Mor Massachusetts. See Table 4, which aggregates the attributes considered in this analysis. The other states are represented at a much smaller frequency; three two Connecticut each in facilities, Vermont and Rhode Island, and Maine only one and from New Hampshire were included. Primarily, this significant relationships that emerged underlying possible discuss and Fernald of context the within from our analysis relationships. mechanisms that determine the We first summarize and describe the characteristics of reuse the and sites our the of picture general a present to sample process. We then compare Fernald to the average of all sites in our sample and to those sites determine located in broadly that Massachusetts set shared Fernald apart. characteristics Lastly, we and present the statistically those The understanding of the disposition and redevelopment process landscape. reuse the within Fernald contextualize to help and STATE HOSPITALS STATE SCHOOLS INCLUDED IN SAMPLE CONNECTICUT 4 14 3 MAINE 4 1 1 MASSACHUSETTS 16 7 11 NEW HAMPSHIRE 2 1 1 RHODE ISLAND 4 2 2 VERMONT 1 1 2 TOTAL 31 26 20 Table 4: Distribution of included sites across states.

Although each site is unique in its specific development COMPARING FERNALD TO THE SAMPLE outcomes, some patterns in reuse emerged. Roughly three- Analyzing Fernald’s characteristics relative to the other quarters of the plans for the campuses explicitly designated facilities in the sample reveals several similarities and areas for open space, the most common land use. Institutional differences of interest. Table 6 compares Fernald to the entire was also prevalent, with nearly two thirds of campuses sample and to those sites locted in MA. occupied by a public organization. A high proportion, 60%, of the campuses underwent adaptive reuse to some degree. PREDICTIONS OF THE META!ANALYSIS IN RELATION Affordable housing was less common, though still appeared TO FERNALD in roughly a third of the population. Commercial development occurred as commonly as affordable housing. More often than The following discussion explores the relationship between not, the property was divided among multiple developers. On potential outcomes and characteristics exhibited by Fernald. more than half of the sites, solely public or non-profit entities Certainly, these following associations do not suggest executed the redevelopment. Private developers were more a definitive fate for Fernald, nor do they speak to the common in the case of divided sites, however. appropriateness of any outcome of interest for the site. It is important to remember that each campus, despite similar traits or circumstances, faces a unique and varied reuse process. The results of the meta-analysis, however, can help FWG to anticipate decisions that the reuse process will need 49 VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER 40 100 2011 1500 MAX 80387 99394 12791.9 3 30 20 99.3 MIN 3966 1971 35810 CAMPUS SETTING PROCESS OUTCOMES 43 476 12.3 35% 39% 80% 65% 53% 44% 66% 71% 53% 65% 62942 62.5% 61.5% MEAN 1485.705 23002.35 1991-1992 PRIVATE DEVELOPER PRIVATE TRANSITION IN YEARS AFFORDABLE HOUSING USE INSTITUTIONAL/PUBLIC COMMERCIAL DIVIDED PROPERTY REUSE COMMITTEE REUSE GROUP CITIZEN’S ADAPTIVE REUSE OPEN SPACE NRHP LISTING NRHP CLOSED YEAR PUBLIC AGENCY/AUTHORITY MEDIAN HOUSEHOLD INCOME HOUSEHOLD MEDIAN ACREAGE BUILDINGS OF NUMBER PLANCOTTAGE POPULATION DENSITY POPULATION Table 5: Descriptive statistics. MEDIAN POP. POP. COTTAGE NRHP ACRES NO. OF PUBLIC REUSE CITIZEN INCOME DENSITY PLAN BUILDINGS AGENCY COMM. GROUP FERNALD $68,326 60,632 4,763 yes yes 196 72 no yes yes

MASS. $69,105 23,439 2,278 .73 .91 391 46 .75 .56 .5 AVERAGE SAMPLE $62,942 23,002 1,486 .8 .65 476 43 .62 .53 .44 AVERAGE Table 6: Fernald vs. Means for Sample and MA. to address that stem from Fernald’s qualities. We report here ǩ Higher median incomes slightly decreases the only those relationships that we can support statistically and likelihood of adaptive reuse, affordable housing, and postulate channels of influence for these associations . commercial use.

In terms of location, Waltham is significantly more populous Like the majority of the sites, Fernald follows a cottage plan and more dense than the settings of other hospitals. Only four and is listed on the NRHP. of the included sites in the sample are considered urban by US Census standards, that is have a population density of 1,000 ǩ A NRHP listing is associated with higher likelihood of people per square mile or higher. Waltham’s median income affordable housing. This correlation may be driven by exceeds the average of our sample by just over $5,000. the existence of tax incentives for both preservation (HTC) and creation of affordable housing. Using ǩ Both population and population density increases the these credits in conjunction greatly contributes to the likelihood of a private developer. Since larger towns feasibility of these projects (Rypkema 1994). and cities tend to have more economic activity, private developers may take more notice of sites in these more ǩ A property with an NRHP listing is more likely to be populous areas. divided among multiple developers and is more likely ǩ Population density increased the likelihood of to be developed by a private entity. affordable housing. Housing prices tend to be higher in urban areas, which may influence the necessity of ǩ A property with an NRHP listing is more likely to be providing this service. used in an institutional manner.

51 VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER

COMMITTEE

REUSE REUSE + + + CITIZEN GROUP CITIZEN

- - +

+ +

AUTHORITY

REDEVELOP. REDEVELOP. +

TRANSITION

YEARS IN IN YEARS - +

- - + + + +

DIVIDED

PROPERTY PROPERTY - +

+ +

DEVELOPER

PRIVATE PRIVATE - + + + +

- - - - + + OPEN SPACE OPEN

- +

+ +

USE

INTSITUTIONAL INTSITUTIONAL + + +

+ +

USE

COMMERCIAL COMMERCIAL - +

HOUSING

AFFORDABLE AFFORDABLE - - - + + +

- - + +

REUSE ADAPTIVE ADAPTIVE - - - + + COMMITTEE REDEVELOP. REDEVELOP. AUTHORITY GROUP CITIZEN REUSE MEDIAN INCOME MEDIAN ACREAGE NO. OF BUILDINGS PLANCOTTAGE NRHP POPULATION POPULATION DENSITY Table 7: Correlation matrix. ǩ Cottage plans are less likely to be used as open space. significant cost to the future developer. As costs This may be due to the number of buildings, which increase with the number of structures, with more may cover a significant portion of the parcel. Creating buildings developers may anticipate lower profits and open space on a cottage plan campus requires more are thus less interested in buying the entire parcel. demolition and clearing work. ǩ Affordable housing is more commonly introduced on ǩ Cottage plans, however, are less likely to transition to campuses with high numbers of buildings. affordable housing. ǩ A word of caution concerning spurious associations must be introduced here. Given that much higher ǩ Cottage plans are less likely to be developed by a number of structures are associated with cottage private developer. plans, relative to Kirkbride plans, we would expect to see similar relationships between outcome variables The parcel that Fernald occupies is relatively small. In fact, and cottage plans and outcomes and number of three-quarters of the campuses in the sample exceed its buildings. Our results indicate exactly the opposite, area. In terms of number of buildings, however, Fernald’s evidence that a third accounted for factor may be stock dwarfs all but one site. While this relation may seem driving these associations. odd intuitively, a negative correlation between number of buildings and acreage exists within the sample. This Fernald boasts both an appointed reuse committee could be a result of population pressures. Settings with and a citizen visioning group. Although these less land to spare may have required greater capacity. organizations each formed in roughly half of the cases, only a quarter of all reuse processes involved both. ǩ Smaller parcels are more often developed by private entities. Larger parcels may garner more concern from ǩ The involvement of a citizen visioning group increased local government or other public entities, who may the likelihood of affordable housing. The efforts of the reluctantly step in as developers. The smaller parcels citizen visioning group may encourage decision makers may represent less of a threat to the community and to pay a more consideration to the needs and voices therefore may not encourage or necessitate public of the community. Affordable housing may be one of involvement. community needs that receives more attention and weight when a citizen group exists to advocate for this ǩ Campuses with larger numbers of buildings are use. more likely to be divided among multiple developers. Rehabbing or demolishing buildings represent a ǩ The involvement of a citizen visioning group increased the likelihood of open space. Like affordable housing, open space is widely considered a community need. 53 VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER

The length of the transition period for sites for which a transition period for sites for which The length of the was appointed was shortened. reuse committee organizations did not The joint involvement of the two of any particular significantly impact the likelihood of the reuse outcome related to use or developer lack of cooperation process. The perhaps indicates a reuse groups and or even disjoint between appointed citizen-based groups. The involvement of a citizen visioning group also visioning group of a citizen The involvement of adaptive reuse, the increased the likelihood the institutional or public use, and introduction of an developer. involvement of private reuse committee was appointed Sites for which a some are more likely to preserve suggests these sites degree of open space. ǩ ǩ ǩ ǩ SURVEY RESULTS PRIORITIES OF MEMBERS 7 The response to one survey question in particular underscores 6 the importance of developing Fernald with consideration 5 4 of the community needs. A multiple choice question asked 3 participants to indicate the population that they envisioned 2 Fernald serving in the future. Responses were largely similar 1 across participants who, on a whole, seem to hope that Fernald 0 will become an all inclusive and widely used resource. This aspiration highlights the importance of involving the wider Waltham community in the reuse process.

Achieving inclusive outcomes could be accomplished through flexibility in use, diversity of uses, or a combination of the two. The first approach, which centers on the potential for Figure 10: FWG survey results on member priorities. users to personally shape their experience with the site, underscores the value of flexible or unprogrammed open space. Creating open spaces represents a viable opportunity VALUES AND INTERESTS OF STAKEHOLDERS to ensure that Fernald indeed serves a broad and diverse This section incorporates the results of both the survey population. Moreover, this objective, and in particular the we administered to FWG and the content of stakeholder Western Greenway, has attracted considerable support interviews. Our analysis of this content helped the team from organizations throughout Waltham. The results of the identify the challenges and opportunities of integrating the survey echo the FWG’s belief in the potential of preserving Fernald into the surrounding community. open space at Fernald. Five of the survey participants named increasing public access to open space as one of the five most We report the complete results of the survey in Appendix F. important objectives of the FWG. Here, we discuss only the results that provide meaningful insight to the question of integration and those results that Of all specific uses inquired about in the survey, the Western directly shaped and informed the structure of our interviews. Greenway garnered the strongest and most wide-spread support; all participants expressed beliefs that it represented an appropriate use for Fernald. A few free response questions elaborated on the possibility. Five members viewed open space as the most realistically achievable, citing widespread political 55 VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER Local State Regional with? 57% 14% 29% is most crucial for FWG to engage engage to FWG for crucial most is Q: What scope or level of stakeholders of stakeholders level or What Q: scope on the survey. Possible uses for the future of Fernald were organized under Agricultural, seven Commercial, Recreation/Open major Services, Space, categories Social Treatment according uses possible these sort (Residential, to asked were Participants for the to Disabled their level and of agreement that Education). they were appropriate to among the participants, who, it only seven bears and have repeating, openly voiced number agreement and for support a shared vision. Soliciting information and involving the community in the planning process, as is desired will only increase by the dispersion FWG, of opinions and may reveal further conflicts in values and priorities. Particularly illustrative surrounding the of use of the site was the a Likert-type question complexity of opinion Less than1 Year 1-3Years 3-5Years 1-3 Years 3-5 Years >10 Years Fernald? 43% 28% 29% Q: What time frame should FWG What Q: frame time consider when planning for the future of the future planning when for consider vision of the FWG may responses survey The narrow. more be are goals their achieving broad, the preferred means to reveal that on some specific issues, disagreement exists The second that concept method a for plan, encouraging village inclusivity--diversity use mixed of a by driven be use--could Implementing in. interest expressed previously also has FWG this, however, may existence of unified incur FWG support for the idea suggests. more The complications results of the than survey indicate that the while the objectives and support, ease of implementation, and low maintenance. One member also identified open space as the most objective, arguing that, “People have lost connection with the promising are that spaces see to people for important is It environment. not controlled by humans.” Figure 11: FWG survey results on time frame and type of stakeholder. and type of stakeholder. Figure 11: FWG survey results on time frame the site and community of Waltham. Especially in the case Another tenet of the FWG vision is the stimulation of small of private uses, such as residential and commercial, the business, which a majority of respondents also expressed dispersion of the responses reveal specific preferences of support for through the survey. Small business can assume members that are at odds with one another. many forms such as research, retail and light industry. Perhaps a limitation of the question design in the survey, the For instance, FWG members responded very differently to question remains whether the types of small business that various residential uses. Participants, on a whole, did not could occupy Fernald matters. Only the explicitly termed support single family homes, but many were also cautious small business option was viewed favorably on a whole within of multi-family or high density residential development. In the category of Commercial Development. Light industry fact, responses indicated significant dispersion of opinions split the participants, as it attracted significant support but surrounding multi-family living. The median response to also significant opposition. The mode and median, however, this use was neutral, but the range of responses covered reflected agreement. Retail similarly reflects differing the entire scale with modes of two at both agree and neither opinions on its appropriateness. A majority favored it, but the agree nor disagree. In sum, multi-family/high-density opinions ranged from strongly agree to disagree. No strong residences represents the most contentious issue among the support was shown for research or commercial activities. In participants. Participants seem to favor balance in the issue the latter case, more outrightly opposed than supported it. of housing; a mixed income development garnered the most support of the category. All participants agreed or strongly Though related more so to planning for the process than to the agreed that Fernald was well suited to this use. act itself, additional challenges may arise in the formulation of logistics and strategy in relation to FWG championing their Affordable housing represents one of FWG’s central vision for the site. Significant disagreement seems to exist on objectives, but some participants’ comments revealed some the issues of time frame and stakeholders. concern related to the community of Waltham’s views on the issue. One participant noted that, “There is a general negative For one question related to stakeholder engagement, three attitude in Waltham and many other communities around possible answers were provided: local, state, and regional. the concept of community housing. Many people equate Participants were allowed to select only one. The modal choice community housing with public housing projects that seems was local, which four participants selected. State stakeholders to perpetuate poverty.” Another cautioned that, “Housing were selected by two and the remaining participant picked should be mixed income so that no stigma is associated with regional. Though a majority agreed on local stakeholders, living there.” Some effort will be required to solidify the role these results do suggest some divergence among the group that affordable housing could assume on the site and tactics on this issue. An open-ended question that asked participants for easing any community reluctance on the issue. to identify the stakeholders they viewed as most critical to engage reiterates the diversity of members’ views on the 57 VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER three to five, five to ten, and more than 10 pooled roughly equally years--answers into just three: one to three, three to five, and more than 10 years. engaging with state government or the governor. government or the governor. engaging with state frame time the about inquired survey the in question final The planning when consider should FWG believed participants that for Fernald. Significant discord emerged in the Of responses. the five periods offered--less than one year, one to three, subject. Several participants focused on their Waltham, though responses carefully from the city government. differentiated Direct abutters (such as the Bentley University, the Girl Scouts, University community of Massachusetts and the Gann Academy) and neighboring residents each received mention by a participant. However, other responses favored INTERVIEWEE OPEN SPACE AFFORDABLE HOUSEING BUSINESS SMALL TRANSPORTATION ORIENTED DEVELOPMENT DAYLIGHT STREAM OF PRESERVATION SERVICES COMMUNITY SERVICES PRESERVATION HISTORIC OF BUILDINGS TRAFFIC MANAGEMENT BROWNFIELD RESTORATION 1 Yes N/A Yes N/A N/A N/A N/A N/A Yes N/A 2 Yes N/A N/A N/A Yes N/A N/A N/A N/A Yes 3 Yes No No Yes Yes Yes Yes Yes Yes Yes 4 Yes No No Yes Yes N/A N/A N/A Yes Yes 5 Yes No No N/A Yes Yes No Yes Yes Yes 6 Yes Yes N/A N/A N/A N/A N/A Yes N/A N/A 7 Yes Yes Yes Yes Yes Yes Yes Yes Yes Yes 8 Yes Yes Yes Yes Yes Yes Yes Yes Yes Yes Table 8: Stakeholder interests.

INTERVIEW RESULTS Our analysis of stakeholder interviews indicates that the Of the eight stakeholders interviewed, five represent local preservation of open space is the most prevalent interest interests and three regional interests. In this instance, local and was positively identified by all stakeholders. (Table 10) interests are defined as attitudes and opinions that reflect The more specific interests of daylighting the stream and the a primary concern for the Waltham community. Regional removal of contamination from the site, which are related to interests are defined as attitudes and opinions that reflect a the preservation of open space, received equal support from concern for communities, organizations or projects inclusive regional and local stakeholders and were tied with traffic of Waltham, but where the broader interests of surrounding management as the next most cited issue. Traffic management communities are of equal or greater importance. along Trapelo and Waverley Oaks Roads received more attention from local stakeholders, but was still cited as a The results of the interviews are summarized in Tables 8 major concern by two of the three regional stakeholders. and 9. The following visual representation of our stakeholder interviews allows for a quick interpretation of these common themes. 59 VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER Yes Yes Yes Yes Yes N/A N/A N/A PROCESS PROACTIVE & POSITIVE reaction to them, received broad attention, but commonly cited were among local stakeholders. Two interviewees more adamantly expressed the keen interest of Waltham residents to involve themselves in a reuse Lastly, project the principles of sustainable such development were cited as Fernald. by all of the regional stakeholders but only two of the local ones. and negative support, though it should out of be the noted three that regional two stakeholders support expressed for these negative interests while only one local stakeholder specifically opposed them. the by cited positively were study this in identified values three All majority of stakeholders (Table 12). Community participation ranked first and was cited by all local stakeholders and but all one regional stakeholder. The desire for a proactive and that process technical a to opposed as process, reuse positive public and proposals of development procedural the on relies Yes Yes Yes Yes Yes Yes N/A N/A COMMUNITY COMMUNITY PARTICIPATION Yes Yes Yes Yes Yes N/A N/A N/A SUSTAINABLE SUSTAINABLE DEVELOPMENT 6 7 8 1 2 3 4 5 INTERVIEWEE these are the only three interests which were explicitly cited with negative support (Table 11). Affordable housing and the creation of small businesses were cited equally with positive primarily a concern for Waltham stakeholders. primarily a concern for Waltham Finally, the creation of new community services, affordable housing and goals, positive and opportunities important as attention for equal about received small business growth all but almost exclusively from local stakeholders. Interestingly a greater concern to local stakeholders. Bringing more public public more Bringing stakeholders. local to concern greater a transportation options to North Waltham, either as a goal in and of itself or as a prerequisite for any further development Preservation stakeholders. all of half by cited was area, the in of services for the developmentally disabled at the Fernald site was also mentioned by half of all stakeholders, but was Table 9: Stakeholder values. The preservation of the historic resources overwhelming was but interest, cited on most the as next ranked the site was RANK OF INTERESTS BY POSITIVE SUPPORT RANK INTEREST SUPPORTIVE REGIONAL LOCAL TOTAL 1 Open Space 3 5 8 2 Daylight Stream 3 3 6 2 Brownfield Restoration 3 3 6 2 Traffic Management 2 4 6 3 Preservation of Historic Buildings 1 4 5 4 Transportation Oriented Development 2 2 4 4 Preservation of Services 1 3 4 5 Community Services 1 2 3 5 Affordable Housing 0 3 3 5 Small Business 0 3 3 Table 10: Rank of interests by positive support. 61 VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER 7 6 5 3 3 1 TOTAL TOTAL 5 4 2 1 1 1 LOCAL LOCAL NOT SUPPORTIVE NOT POSITIVELY IDENTIFIED POSITIVELY 2 2 0 2 2 3 REGIONAL REGIONAL RANK OF POSITIVELY IDENTIFIED VALUES IDENTIFIED POSITIVELY OF RANK VALUES RANK OF INTERESTS BY BY INTERESTS OF RANK NEGATIVE SUPPORT INTEREST Sustainable Development Community Participation Proactive & Positive Process Affordable Housing Small Business Community Services 2 1 1 1 1 2 RANK RANK Table 12: Rank of positively identified values. Table 11: Rank of interests by negative support. Table 11: Rank of interests 7. CONCLUSIONS

63 / THE REUSE PROCESS 64 / OUTCOMES 63 VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER We did not encounter another example of a state disposition citizen or committee reuse a of activities the which in process group commenced prior to the property surplused. Fernald in remained in operation question during the course being of this study, at which time reuse activities, both official and citizen led, had been ongoing for approximately This supports that the value of ten a proactive and positive reuse years. lengthy one. Attempts to reconcile state and local interests be likely would that process a complicate can simultaneously lengthy even if local authorities had full planning authority, and recommendations to limit the state’s redevelopment authority in of the these development sites in process favor (MAPC have 2005). The of complex nature of the these large parcels locally been driven requires that suggested both broad community interests be considered elsewhere alongside the application skills. To of the extent that the specific city of Waltham would technical the control development of planning Fernald according to land use ordinances has local never been in question, but both the zoning and interviews and an examination of existing revealed state legislation a considerable the amount status of the city in of the reuse process and the confusion extent to which it regarding might be required to compete directly with private developers if anything other than on desire a general a encountered We property. the for desired direct public use was the part of local stakeholders that the city drive the planning and reuse process, and, again, attitudes to the effect that if and when the city gains control of the site the reuse process will begin anew. The interviews and supporting research the also idea support that the the process viable reuse of plan for large state surplusing owned parcels is typically a and developing a reuse process can be lengthy. The average length of the THE REUSE PROCESS REUSE THE governmental body, the Belchertown Economic Development and Industrial Corporation, in the early 2000’s specifically for the purpose of redeveloping the Belchertown State School. The property, however, remains predominantly vacant. The transfer of the property from its state control is just the first hurdle to overcome. Purchase of state surplus property by a also local doesn’t municipality guarantee timely development. a Indeed, transfer such may initiate instance, a the city of new Preston, Conn., development 2009. now in Connecticut of state seeks the from process. purchased it a that parcel buyer For for In Belchertown, Mass., the municipality established a quasi- high for project completion. For example, at Foxborough two of the three initial developers, foreboding. than more Vinco cautionary is point and this But bankruptcy. Intoccia, filed for Many of the included sites in our sample reuse and redevelopment. boast successful example in Westboro, unveiled Massachusetts, plans MassDevelopment for a 2000s only to mixed see the project use fall through a few community years later. The in property the has since early been and divided sold piecemeal into to smaller private real parcels estate investors with immediate no plans for the site. In addition, costs can prove too The transition time in our meta-analysis data exceeded 13 years. Moreover, tumult and Developers, obstacles both public and private, pull out of projects. beleaguer For the process. process is prevalent in the Waltham community alongside the OUTCOMES desire for greater public participation in the reuse and planning Our results suggest that the presence of existing uses and processes. In addition, we encountered a mix of admiration institutions, and the involvement of certain organizations does and frustration among several stakeholders regarding impact reuse outcomes. Our meta-analysis results suggest municipal operations. On the one hand some stakeholders that a quasi-governmental authority decreases the likelihood applauded the local government for its fiscal management, of affordable housing and adaptive reuse, while increasing the lack of controversy, and strategic use of resources, while on likelihood of institutional use. A quasi-governmental authority the other hand expressed concern over an apparent lack of is associated with a lower likelihood of a private developer access and transparency. This suggests that there may be an -- as in some cases the authority acts as the developer. The opportunity for the city to engage a resourceful, amicable and involvement of this type of organization also increases the willing public in a productive reuse model that could enhance length of the transition time. A reuse committee, in contrast, the standard regulatory process, perhaps shortening the time may reduce the time in transition according to our results. A in which new plans for the Fernald site are realized. reuse committee additionally increases the use of the campus for open space, as does the involvement of a volunteer citizen The unofficial announcement of a proposed “sale partnership group. A volunteer citizen group’s work is associated with model” on March 26, 2014, suggests that three Massachusetts higher likelihoods of affordable housing, adaptive reuse, and municipalities will assume control of a reuse process while institutional use as well. protecting the state’s ability to share in revenues generated through the future sale and development of three large But, physicalities--such as size and plan--may also determine state parcels. Some stakeholders acknowledged this as an outcomes. In fact, the number of buildings influences a innovative solution to a cumbersome process, but it was also majority of our outcome variables. A higher number is suggested that this could limit the potential for representing associated with a higher likelihood of affordable housing, regional interests. Our limited study suggests that the institutional use, and commercial use, as well as a higher significant time, thought and effort that has been applied likelihood of subdivision and a private developer. Years in to Fernald in the past ten years has already succeeded in transition, too, increases with a cottage plan. As acreage is generating consensus around particular interests and values, negatively correlated with the number of buildings in our and that the challenges of a new process will stem from how sample, the size of the parcel is similarly negatively related the city decides to engage the past activities of the state to several of the outcomes associated with a large number of reuse process with a new one that incorporates the ongoing buildings. External factors such as population and population interests and concerns of citizens and community advocates. density shape eventual outcomes. The likelihood of affordable housing increases with population density. Both a higher density and the population count increase the likelihood of a private developer. In sum, a combination of physical, social, and political factors influence reuse outcomes. 65 VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER the site’s ability to process stormwater and limit the effects watershed. downstream in the Charles River the campuses appeals to larger organizations. Or, perhaps these organizations act first. A negative association between sample. our in emerged use institutional and transition in time over consensus broad is there that show results interview Our the preservation of open space at Fernald in and expanding access an to interest the site though the extension of the Western Greenway. Accompanying this are interests related is There site. the on resources natural the of restoration the to materials hazardous the of remediation the for support broad in association with the existing oil power plant, the asbestos insulation on the steam distribution piping, and the lead and structures. existing the of many in materials building asbestos These are perceived as important first steps not only for the safe enjoyment of the natural resources on the site, but also for the stabilization, preservation, and eventual reuse of the historic structures. There is also broad support for removing site the of portion Northwest the on housing style cottage the Stakeholders beneath. stream the restoring and exposing and of enjoyment public the to contribute could this how mentioned Greenway, Western the with conjunction in especially site, the reducing flows, water traditional restore could it how also but increasing and properties, adjacent of flooding the and runoff on the previous Grafton State Hospital land in Grafton, MA, including the Tufts Cummings School of Veterinary Medicine and Grafton Jobs Corporation facilities. Perhaps the scale of a cottage, and dormitories for international students. Some Facilities, Correctional Bergin to annexed was land additional a CT Department of Correction training center and minimum security prison. Additionally, several institutions now sit NH Dept. of Health structures and and Human sex Services offender occupies incarceration on site. also The other Mansfield Training is Center in CT once present bordered, and has since partially been subsumed into a University Connecticut campus. Academic activities of on site now include in arts of school community-based a research, environmental another--not an outcome championed occur uses institutional fact, In uncommon. not statement--is in the FWG vision on 13 of 20 sites in our sample. One example, NH in Meredith, at the prior currently serve Laconia Lakes Region State Mutual Fire Hospital, Aid Association, three buildings and flourishing case of the former Brandon State School, the mixed use development included not simply residences and businesses, but an arts center and gallery, a small museum and an alpaca farm. to the school, a yarn factory space Transferring the campus from one institutional use to present on nearly a third of all sites. Moreover, mixed which use, FWG supports, can be an effective and successful land use strategy. This pattern of development is widely prevalent in our sample and takes many forms. For some sites, mixed use simply means affordable housing and some small scale commercial development. Contrastingly, in the interesting FWG’s vision incorporates several common uses reuse Adaptive that plans. reuse past were in implemented successfully In sites. of half than more on present now are space open and campuses in MA affordable housing, too, occupies a majority of campuses. Commercial use, however, and small in business, particular is less common. However, this use is still Reducing and maintaining current traffic flows around the Affordable housing was clearly the most contentious Fernald site was the next most cited issue. While there potential reuse scenario for the site. In all three instances was overall consensus regarding an interest to prevent any of local stakeholder support, affordable housing was activity that would increase traffic, there was less consensus cited as necessary to fulfill a present need in the Waltham on how to achieve that in relation to the opportunities community and that families with long histories in Waltham presented through the reuse of the Fernald site. While some are concerned that their children may not be able to afford stakeholders explicitly drew the connection between their to live in the city in the near future. It is worth noting that all support for preserving open space (and in some cases, their support of affordable housing was in the context of mixed- opposition to housing or other development), at least two income development and the reuse of historic buildings or stakeholders viewed the opportunity for development at their footprints. In no instance did a stakeholder advocate Fernald as a way to leverage more public transportation for for dedicated low-income development or support the North Waltham, creating a transportation hub at the site that construction large housing complexes on the site. In two could service the entire area more efficiently than current out of three instances where there was explicit opposition MBTA service provides. to affordable housing, the stakeholders made a distinction between their general support for affordable housing in Interestingly, we found broad agreement among local general a belief that the general public equates affordable stakeholders concerning the preservation of the historic housing with low-income housing projects, suggesting that resources on the site, but this was not necessarily accompanied there would be widespread opposition to affordable housing at with suggestions for their reuse or support for development Fernald. This also suggests that there is potential for greater on the site. The historic structures on the site represent consensus on housing scenarios that focus attention on the approximately 700,000 square feet of developable space (DCAM adaptive reuse of the historic structures within mixed-use 2011), and while it can be assumed that a significant portion and mixed-income development. Affordable housing appears of this number represents structures that either cannot be to be a hot button issue that obscures a larger conversation salvaged or are otherwise unfit for rehabilitation, it can also about community and housing preservation, and how the be assumed that appropriate uses will have to be identified Fernald site may have the potential to address these values for the long-term security and viability of these resources. in a manner that addresses other interests for which there is When specifically asked what uses stakeholders might want broad consensus. to see, suggestions included a museum to commemorate the residents, patients, and students at Fernald, limited senior and veteran’s housing, small businesses, and affordable housing. There was little mention of cultural amenities, and one interviewee specifically mentioned the desire to avoid development that might attract visitors from outside the area. 67 VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER potential to incorporate all three SD principles on the Fernald the on principles SD three all incorporate to potential site, some saw the site as a smaller component in applying level, or both. SD principles at a citywide or regional procedural requirements of a new reuse process. The values of sustainable development (SD), which economic, social seeks and environmental concerns, to were evident balance in many of the stakeholder responses, but it was clear that different stakeholders were often in applying different ways the and in at principles different levels. While some the as opposed to strategizing ways already to underway. This respond was evident to in a the value process that stakeholders many placed in both community work of the activism foral reuse committee. and However, there is the some question regarding the extent to which the past activities of be invoked to satisfy the the Fernald Reuse Committee might The values reinforced identified in in the participation this was explicitly interviews. cited as an study essential The component importanceof were a legitimate of planning consistently process. This public attitude related was to an closely expressed desire to be proactive and positive; to craft a process around community interests and values 8. RECOMMENDATIONS 69 VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER institutions may guarantee them a place at the table and sympathetic ear. a Though it is unknown to us what extent the FWG has actively sought to engage we with recommend such institutions not local be considered a threat, institutions, but be engaged in dialogue as potential allies in determining Fernald’s future. that can influence the planning process. FWG could benefit from a conversation that resources explicitly devote to identifies like would the FWG the individuals that organizations and to and develop partnerships with. Secondly, FWG might also benefit from determining an appropriate timeframe to meet their immediate goals. A plan for the next differ three years significantly will from a ten year action of course next its implement plan, to chooses FWG that time and the length of will invariably affect the structure and initiatives. magnitude of their We recommend that FWG institutional stakeholders. give Institutional greater uses consideration proved among to to the be most common meta-analysis. In uses many cases, the institutions that of occupied sites included the parcel in after disposition our were local. Several institutions currently abut Fernald, including Bentley College, the Girls Scouts of America, Fernald the around neighbors institutional and existing of number the Gann Academy. property Due we believe FWG to should little seek expressed has to FWG the future. it’s better and Fernald understand of views their to no support for institutional uses in their vision statement, and yet the potential resources available to neighboring development and execution of next steps for the work of FWG of work the for steps next of execution and development will likely contribute to how successful they are in attracting dialogue productive a establishing and others of attention the -Judith Innes & David Booher, 1999 -Judith Innes & group, the survey revealed that members engage to did stakeholders which Namely, not issues. logistical agree some on and the timeframe in which to set goals and formulate tasks. With the impending sale partnership model, the efficient number of adaptive reuse scenarios. within consensus greater for strive FWG that recommend We their own group and continue to build relationships among other influential stakeholders in municipal government, the greater Waltham community, and beyond. Within their own the number of structures that are neither historic salvageable also present a nor challenge to their reuse. Specifically, either to related costs increase may structures of number the preservation or demolition, which may negatively influence the creation of open space or the implementation of any reflects a deep and long studied understanding of the greater the of understanding studied long and deep a reflects that ensure to taken be should care but community, Waltham the group’s objectives reflect a recognition of number large the While site. the of limitations and influences the physical of historic buildings certainly constitutes a valuable historic assets, the dispersion of the set structures coupled with of Any reuse process should diversity recognize of factors that are a at play. number Beyond specific the and organizations, involvement of the physical surrounding traits land uses of will the also play site a role Fernald’s and in determining ultimate use(s). We believe that FWG’s vision “No matter how good an agreement is by some standards, if it if standards, some by is agreement an good how matter “No open, fair, as regarded not was that process a by reached was inclusive, accountable, or otherwise legitimate, it is unlikely to receive support.” We recommend that FWG articulate the values that inform There are established collaborative planning models that have their vision and explicitly connect them with the interests and developed significant track records with supporting literature, values of other stakeholders. Reframing the vision away from case studies, and organizational capacity (Innes and Booher a specific version of the future toward a set of conditions that 1999, 2010; Nolon et al. 2013). The Mutual Gains Approach, as could intersect broader community interests may allow other described by Nolon, et al. (2013) was specifically designed to stakeholders to envision a Fernald they can better identify help decision makers resolve complex land use issues that with. In addition, this has the potential to free the FWG from involve multiple stakeholders when there will be long-term specific perceived interests, as some stakeholders expressed and far reaching impacts on the community and landscape, a concern that the FWG was a veil for other organizations and when there is likely to be a challenge to outcomes that and interest groups. Though limited, this study indicates that are not arrived at collectively. SD values embedded in FWG’s vision, such as community engagement, providing for the social and transportation needs of the greater Waltham community, and reducing the potential for stress on the neighborhoods surrounding Fernald, all have the potential resonate with a broad audience.

Finally, we recommend that FWG pay more attention to the formal process that will govern the planning for the site at the municipal level and seek ways to enhance it. It is clear to us that FWG is attempting to do more than simply express a preference for certain outcomes, but rather establish a positive rethinking of the possibilities at Fernald with the goal of influencing the planning process itself. Engaging a broader coalition of stakeholders, as recommended above, could help establish FWG as a potent and inclusive community organizer, but the process through which it influences the outcomes at Fernald will depend largely on how government officials perceive FWG and the extent to which they are willing to extend standard procedures to explore a larger conversation and more possibilities. 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Hogan, Michael P. 2003. "MassDevelopment: Leveraging Joseph, Alun E., Robin A. Kearns, and Graham Moon. 2009. Public/Private Partnerships." City and Town, January 2003, "Recycling Former Psychiatric Hospitals in New Zealand: 77 VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER Megan, Kathleen. 1993. "Mansfield: End of an Institution." Megan, Kathleen. 1993. "Mansfield: The Courant, January 31, 1993. Greyfields: Definitions, Merritt, Amy W. 2006.Redeveloping Opportunities and Barriers. Metropolitan Area Planning Council (MAPC). "Positive Massachusetts Historical Commission (MHC). "Application Commission (MHC). "Application Massachusetts Historical the E. Fernald State School on for Listing the Walter 8, 1993. for Historic Places, December National Register Http://www.City.Waltham.Ma.us/sites/walthamma/files/file/ . file/scannhrapplication.Pdf." Sanctuary.", Nature Center & Wildlife MassAdubon. "Boston http://www.massaudubon.org/get- accessed 4/2, 2014, outdoors/wildlife-sanctuaries/boston-nature-center/about. Dual Land- McCarthy, Linda. 2002. "The Brownfield Barriers to Private use Policy Challenge: Reducing Reuse to Broader Redevelopment while Connecting 19 (4): 287-296. Community Goals." Land use Policy 1990. Mechanic, David and David A. Rochefort. of Reform." Annual "Deinstitutionalization: An Appraisal Review of Sociology: 301-327. Summary of State Medfield State Hospital Vision. 2014. for Jan 21 Visioning Hospital Reuse Projects: Presentation Workshop. Ansorge Ball, Commissioner Marylou Sudders, Jessica Marylou Sudders, Ball, Commissioner Ansorge and Lisa Lambert." . Henderson Daniel, Massachusetts Health Policy Forum, The. 1999. "ISSUE BRIEF NO. 6: MENTAL HEALTH CARE IN MASSACHUSETTS, A Discussion Featuring Professor David A Rochefort, Laurie Mallach, Alan. 2006. Bringing Buildings Back: From Mallach, Alan. 2006. Bringing Buildings Assets. Montclair, New Abandoned Properties to Community Jersey: National Housing Institute. and Historic Mason, Randall. 2005. "Economics The Brookings Institution. Preservation." Washington, DC: Kucik, Lisa M. 2004.Restoring Life: The Adaptive Reuse of a Kucik, Lisa M. 2004.Restoring Life: Sanatorium (Journal Article). Sage. Kvale, Steinar. 2008. Doing Interviews Richardson Olmsted Complex. Buffalo, NY: The Richardson Richardson Olmsted Complex. Buffalo, Center Corporation. State School.", http:// Krumm, Janet. "The History of Laconia www.nhchallenge.net/article.asp?ID=277. Remembrance." Housing Studies 28 (1): 135-153. Housing Studies 28 (1): 135-153. Remembrance." Rise and W. 2004.Gracefully Insane: The Kneeland, Timothy Premier Mental Hospital. Fall of America's Master Plan for the Krieger Sieniewicz, Chan. 2013. Echoes of Deinstitutionalisation and Restructuring." Health Health and Restructuring." Deinstitutionalisation Echoes of & Place 15 (1): 79-87. 2013. "Re- Kearns, and Graham Moon. Joseph, Alun, Robin Asylum Spaces through Residential Imagining Psychiatric Strategic Forgetting and Selective Redevelopment: Disposition: Crafting a Balanced Policy for the Sale of Suburbs." Built Environment 36 (1): 81-104. Surplussed State Property. 2005." . ———. 2010. "Beyond Greenfield and Brownfield: The Munoz, Sarah-Anne Munoz, Fiona Smith, and Amy Challenge of Regenerating Australia's Greyfield Suburbs." Nimegeer. 2012. Hospital Grounds Reimagined: Facilitating Built Environment 36 (1): 81-104. Engagement with Hospital Grounds Greenspace Design, Development and Management for Health and Wellbeing. Nolon, Sean F., Ona Ferguson, and Patrick Field. 2013. "Land Inverness: Hospital Grounds Greenspace Project, Arts and in Conflict: Managing and Resolving Land use Disputes: Humanities Research Council, Scottish Funding Council, Chapter 1." Land in Conflict: Preventing and Managing Land Forestry Commission and NHS Forth Valley. use Disputes, Lincoln Institute of Land Policy, Cambridge, Massachusetts, ISBN: 978-971. National Park Service (NPS), U.S. department of the Interior, Technical Preservation Services. "Historic Preservation Tax Nyren, Ron. 2008. "Health Care Reaches Out: Ten Health Incentives. 2012. Http://www.Nps.gov/tps/tax-incentives/ Care Facilities Employ Creative Land use Strategies to taxdocs/about-Tax-Incentives-2012.Pdf." . Integrate Medical Care and Wellness Services into their Communities." Urban Land 67 (7): 50-54. Nemethy, Andrew. "'Going to Waterbury: An Elegy': A Closure Event for the Vermont State Hospital." Vermont Özlüdil, Burçak. 2010. "Asylum: Inside the Closed World of Digger, accessed 4/2, 2014, http://vtdigger.org/2012/10/25/ State Mental Hospitals, Photographs by Christopher Payne going-to-waterbury-an-elegy-a-closure-event-for-the- [Book Review]." Journal of Architectural Education 64 (1): vermont-state-hospital/. 159-161.

———. "Last Remnant of 1,500 Acre Vermont State Hospital Park, Sharon C. 1993. Preservation Briefs: Mothballing to be Sold." Vermont Digger, accessed 4/2, 2014, http:// Historic Buildings. Vol. 31. Washington, DC: U.S. Department vtdigger.org/2012/07/02/last-remnant-of-1500-acre- of the Interior: National Park Service, Cultural Resources, vermont-state-hospital-farm-to-be-sold/. Heritage Preservation Services.

New Boston Fund. 2013. New Boston Fund's Olmsted Green Payne, Christopher and Oliver W. Sacks. 2009. Asylum: Development Brings nearly $100 Million in Community Inside the Closed World of State Mental Hospitals MIT Press. Investment. PESHINA, Evellna V. 2013. "Smart City Growth: Greenfield Newton, Peter W. 2010. "Beyond Greenfield and Brownfield: Brownfield, Greyfield." Upravlenec 45 (5). The Challenge of Regenerating Australia's Greyfield 79 VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER Pine Press (NY). of Massachusetts.", Schuleit, Anna. "State Hospitals accessed 4/2, 2014, 1856.org. Sommer, Robert. 1969. "Personal Space. the Behavioral Basis of Design." (Journal Article). ———. . 2013. Notes from Meeting and Visit to Boston State from Meeting and Visit to Boston ———. . 2013. Notes State Hospital Vision. Hospital: Medfield Hospital on from Visit to Danvers State ———. . 2013. Notes State Hospital Vision. may 27, 2013: Medfield 2005. Towards a Strong Urban Rogers, Richard. Task Force. Renaissance: Urban of Effort, Town Roy, Patricia. 2012. "After Decades Hospital Land." The Takes Over Former Rutland Heights Landmark, October 11, 2012. Economics of Historic Rypkema, Donovan D.,. 1994. The Guide. Washington Preservation: A Community Leader's Preservation. D.C.: National Trust for Historic Relationship Schmidt, Stephan J. 2008. "The Evolving and Local Planning between Open Space Preservation 7 (2): 91-112. Practice." Journal of Planning History F. Feuerstein. 1992. Schneekloth, Lynda H. and Marcia Buildings White Changing Places: Remaking Institutional regarding Redevelopment of Foxborough State Hospital: State Hospital: of Foxborough Redevelopment regarding Vision. Medfield Sate Hospital regarding Northampton State Hospital: Medfield State regarding Northampton State Hospital: Hospital Vision. Rodgers, Gil and Ros Smythe. 2013. Notes from Discussions Rochefort, D. A. 1999. "Mental Health Care in Rochefort, D. A. 1999. "Mental Health Health Policy Massachusetts." Issue Brief (Massachusetts Forum) (6) (6): 1-33. and Phone Calls Rodgers, Gil. 2014. Notes from Meetings Applications for Architects and Engineers Wiley. com. Applications for Architects and Engineers on Finance. 2013. Govenor's Rhode Island House Committee Capital Budget: State of FY 2014 Fiscal Budget, Section IV: Rhode Island. Preston Redevelopment Agnecy. 2010. Http://www.Preston- Preston Redevelopment Agnecy. Ct.org/images/pdfs/CMP_Final_Amended_4-21-10.Pdf. Preston, CT. Analysis of Historic Rabun, J. Stanley. 2000. Structural and Adaptive Reuse Buildings: Restoration, Preservation, Property Board of Selectmen, Town of Medfield. of Selectmen, Town of Medfield. Property Board Need for A. 1989. "State as Steward: The Pollard Iii, Oliver Virginia, Duties for State Agencies in Historic Preservation 9 (Journal Article): 145. the." Va.Envtl.LJ Petersen, Kristen A. and Thomas J. Murphy. 1988. Waltham 1988. Waltham Thomas J. Murphy. Kristen A. and Petersen, Ethnic History of Waltham, Massachusetts Rediscovered: An PE Randall, Publisher. 2012. Ann Thompson, and Mark Fisher. Peterson, Oslel, Hospital Policy Statement: Medfield State Town of Medfield Stanley, Tom. "Blog for Waltham Patch, "State Proposes ———. . 2010. Preliminary Reuse Assessment Opportunities 'Sale Partnership Model' for Westborough, Medfield and and Constraints Analysis . Fernald State Hospitals," March 26, 2014, Http://waltham. Patch.com/groups/tom-Stanleys-blog/p/state-Proposes- Ward Jandl, H. 1992. "The Challenge of Adapting Institutional Sale-Partnership-Model-for-Westborough-Medfield-and- Buildings to New Uses." In Changing Places: Remaking Fernald-State-Hospitals." . Institutional Buildings, edited by Lynda H. Schneekloth, Marcia F. Feuerstein and Barbara A. Campagna, 213-214- Stapleton, Richard M. 1993. "Rescuing a Worthy Building for 223. Fredonia, New York: White Pine Press. a Worthy Purpose." Historic Preservation News 33 (2): 8-9. Waterbury Planning Commission. 2013. Waturbury Municipal State of Vermont. 2011. Request for Information: Future use Plan: 2013-2018: Town and Village of Waterbury, Vermont. of the Waterbury State Office Complex, Waterbury, Vermont. October 21, 2011 Site Walk through. Winters, Terry. 1978. National Register of Historic Places Inventory: Waterbury Village Historic District. Montpelier, VT: Sweet, Dawn. "Planning Board Public Hearing." US Department of the Interior: National Park Service. Westborough Patch, accessed 4/2, 2014, http://westborough. patch.com/groups/politics-and-elections/p/ev--planning- Yanni, Carla. 2007. The Architecture of Madness: Insane board-public-hearing-5. Asylums in the United States U of Minnesota Press.

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University of Rhode Island Cooperative Extension, NEMO Program. 2005. Screening Level Assessment of Alternative Development Exeter, Rhode Island : Town of Exeter. Vita Nuova, LLC. 2010. Lakes Regional Facility: Implementation of the Process for Risk Evaluation, Property Analysis and Reuse Decisions. APPENDIX B: MEMORANDUM OF UNDERSTANDING

83 VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER

85 VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER APPENDIX C: IRB DOCUMENTS 87 VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER

APPENDIX D: META!ANALYSIS SNAPSHOT STATE BUILDINGS ACREAGE CLOSED YEAR DISPOSITION ADAPTIVE REUSE DEVELOPER PRIVATE DIVIDED PROPERTY OPEN SPACE AFFORDABLE HOUSING REDEVELOPMENT AUTHORITY, CDC OR EDC INVOLVEMENT CITIZEN'S VOLUNTEER GROUP INVOLVED COMMITTEE REUSE APPOINTED OR ELECTED SITE DENSITY POPULATION MEDIAN HOUSEHOLD INCOME STYLE COTTAGE NATIONAL REGISTRY OF HISTORIC PLACES FAIRFIELD SATE HOSPITAL CT 478 $90,193 29 520 1995 2001 + + + + + MANSFIELD TRAINING SCHOOL CT 595 $48,888 60 500 1993 + + + + NORWICH STATE HOSPITAL CT 153 $51,304 55 480 1996 2009 + + + + BELCHERTOWN STATE SCHOOL MA 278 $75,502 40 876 1992 2000 + + + + + + BOSTON STATE HOSPITAL MA 2,792 $42,164 N/A 250 1979 1996 + + + + + + + + DANVERS STATE HOSPITAL MA 1,995 $78,593 N/A 178 1992 2005 + + + + + + + + FOXBOROUGH STATE SCHOOL MA 850 $64,323 100 160 1976 2004 + + + + + + + + + GRAFTON STATE HOSPITAL MA 763 $50,020 NA 1,200 1973 1978 + + + + + LYMAN STATE SCHOOL FOR BOYS MA 888 $99,394 NA 100 1971 2011 + + + + MEDFIELD STATE MA 835 $56,905 58 225 2003 N/A + + +

91 VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER ELECTED OR APPOINTED REUSE COMMITTEE REUSE APPOINTED OR ELECTED

+ + + + CITIZEN'S VOLUNTEER GROUP INVOLVED GROUP VOLUNTEER CITIZEN'S

+ +

INVOLVEMENT

REDEVELOPMENT AUTHORITY, CDC OR EDC EDC OR CDC AUTHORITY, REDEVELOPMENT + + + + AFFORDABLE HOUSING AFFORDABLE

+ + + + OPEN SPACE OPEN

+ + + + PROPERTY DIVIDED PROPERTY

+ + + PRIVATE DEVELOPER PRIVATE

+ + + ADAPTIVE REUSE ADAPTIVE

+ + + + + + NATIONAL REGISTRY OF HISTORIC PLACES PLACES HISTORIC OF REGISTRY NATIONAL

+ + + + COTTAGE STYLE STYLE COTTAGE

+ + + + + + + + DISPOSITION -

In

N/A pro cess 2008 2006 1997 2012 2013 2000 YEAR CLOSED YEAR

1995 1993 1993 2011 1992 1993 1991 2010 1996 1991 ACREAGE

30 88 330 300 535 300 250

1,500 1,226 BUILDINGS

30 20 48 39 20 28 31 N/A N/A N/A MEDIAN HOUSEHOLD INCOME INCOME HOUSEHOLD MEDIAN

$44,108 $64,452 $35,810 $60,500 $68,326 $41,808 $83,734 $99,394 $60,664 $42,758 POPULATION DENSITY DENSITY POPULATION

99 112 105 834 219 845 118 156

2,837 4,763 STATE RI RI VT VT ME MA MA MA MA NH THE LADD SCHOOL LADD THE THE FOR SCHOOL BRANDON MINDED FEEBLE HOSPITAL STATE VERMONT LACONIA STATE HOSPITALLACONIA STATE SOCKANOSSET BOYS TRAINING SCHOOL RUTLAND HEIGHTS STATE STATE HEIGHTS RUTLAND HOSPITAL HOSPITAL STATE WESTBORO FEEBLE THE FOR SCHOOL MAINE MINDED "POWNAL, PINELAND# SITE SITE HOSPITAL STATE METROPOLITAN STATE NORTHHAMPTON HOSPITAL APPENDIX E : SAMPLE INTERVIEW QUESTIONS 93 VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER What needs do you think the Fernald could serve for What needs do you think the Fernald Waltham and surrounding communities? might the Fernald serve Follow up1: What potential needs for the Commonwealth and the general public Question 5 Follow up 1: What are you responsibilities? Follow up 1: What of your does your role relate to the mission Follow up 2: How organization? Question 2 Fernald understand your knowledge of the Can you help us site? to the Fernald site Follow up 1: What is your relationship Question 3 would like to see in the What are some of the uses that you reuse of the Fernald? Follow up 1: Ask about specific uses: Affordable housing Light Industrial Use The Western Greenway Agriculture General recreation/open space Historic Preservation Question 4 Question 1 Question been with your current organization? How long have you SAMPLE INTERVIEW GUIDE INTERVIEW SAMPLE regards to the FDC. Let’s get started. for the purposes of exploring potential uses for the Fernald for the purposes of exploring potential for building consensus Developmental Center (FDC), and It is the objective of the around specific planning activities. and interests of all team to accurately portray the concerns valuable information involved stakeholders and to provide contentious issues in for building consensus and resolving Thank you for participating in this interview; it is entirely Thank you for participating in this the interview at any time voluntary and you can terminate as a part of this study for any reason. Information gathered team better understand will be used to help our research and to recommend the process of state land disposition Working Group (FWG) specific approaches to the Fernald relationships that help achieve their vision? relationships that help achieve their Interviewee: TBD Introduction Research Questions: What are the challenges and What are the challenges and Research Questions: that integrating large institutional sites opportunities of usefulness independently and outlived their have developed relate communities? How do these into their surrounding can the FWG form and strengthen to the Fernald? How Adaptive Reuse & Community Integration: The Fernald & Community Integration: The Fernald Adaptive Reuse Developmental Center Diverse uses and neighbors surround the Fernald. Can you envision future uses of the Fernald that would help integrate it into these existing uses?

Question 6 In thinking about the fate of the Fernald site, what would you consider to be the ideal process for determining its reuse.

Follow up 1: Do you have a sense of what a community process for the reuse of the Fernald should look like?

Question 7 Are familiar with the Fernald Working Group?

Follow up 1: Are you familiar with their mission Follow up 2: Can we forward you FWG’s vision statement

Question 8 Thank you for your time and willingness to sit down for this interview. In closing, do you have any concerns or questions for us? APPENDIX F: SURVEY REPORT

97 VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER

99 VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER

VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER 101

VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER 103

APPENDIX G: STATE HOSPITAL PROFILES VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER 105 SOCKANOSSET BOYS TRAINING SCHOOL three dormitories Minimal for a park, but wish Little to none. Some residents advocated was not fulfilled. None No Historic Tax Credit program existed at the time, which limited desirability of the property. early 1990's 2008 and Wilson Stone, Carpenter Cottage Gothic Revival No 30 acres Residential Mixed Use: Commercial, Professional, Chapel View: outdoor shopping center $90 million budget 10 buildings space 304,000 sq. ft. of retail and restaurant 75,000 sq. ft. of office space 35 residential condominiums Carpionato Properties (private) None rebuilt an infirmary, renovated Preserved historic 1891 chapel, Cranston, RI Cranston, 80,387 2,837 $44,108 1881 Special Zoning Notes Open Space Community Process Adaptive Reuse Developers Afforable Housing Current Use NRHP Listing Size Plan Style Disposition Architect Date Built Date Closed Population Density (per sq mile) Density (per Population Income Median Household Location Population Name Name BELCHERTOWN STATE SCHOOL Location Belchertown, MA Population 14,479 Population Density (per sq mile) 278 Median Household Income $75,502 Date Built 1922 Date Closed 1992 Disposition early 2000's Architect Kendall, Taylor, & Co Plan Cottage Style Colonial Revival NRHP Listing 1994 #94000688 Size 876 acres 40 buildings Current Use Institutional (550 acres) Department of Agriculture New England Small Farm Institute Community Facilities Elementary and Middle Schools Recreation and athletic facilities Plenary (300 acres) Care facilities for the elderly and age restricted residences BEDIC hoping to encourage small business and light industry Developers Belchertown Economic Development & Industrial Corporation Afforable Housing None Adaptive Reuse Planned for several buildings Open Space Yes Community Process Volunteer Citizen Reuse Committee Voters authorized the establishment of the BEDIC in 1992 A number of studies and town meetings held during 1990's and 2000's Special Zoning Economic Opportunity Area VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER 107 2009 Plenary None 1903 NORWICH STATE HOSPITAL STATE NORWICH 390 acres owned by town of Preston sale by city Preston Riverwalk currently for in 2011 A number of buidlings were demolished PRA established to oversee reuse process 1996 Cudworth & Woodworth Cottage Late Gothic Revival Colonial Revial, 1988 #87002424 480 acres 55 buildings 1.3 mil sq. ft. Community Facilities: Preston Riverwalk Preston Redevelopment Authority Investigated for admin building Yes Series of public forums and Planned Business Campus Preservation Overlay Zone commercial development Overlay Zone created to encourage Nerwich-Preston, CT Nerwich-Preston, 40,493 153 $51,304 Notes Open Space Community Process Special Zoning Afforable Housing Adaptive Reuse Developers Current Use NRHP Listing Size Plan Style Disposition Architect Date Built Date Closed Population Density (per sq mile) Density (per Population Income Median Household Location Population Name Name FAIRFIELD STATE HOPSITAL Location Newtown, CT Population 27,560 Population Density (per sq mile) 478 Median Household Income $90,193 Date Built 1929 Date Closed 1995 Disposition 2001 Architect Walter P. Crabtree, Sr. Plan Cottage Style Colonial Revival NRHP Listing No Size 520 acres 29 buildings Current Use Community Facilities Town Municipal Center Newtown Youth Academy Ballfields Plenary Plans approved for open space and recreation, arts facilities, public services, light retail and professional offices Developers Accepting proposals Afforable Housing None Adaptive Reuse Yes, five buildings repurposed already and four more marked for preservation Open Space Yes, 40% Community Process Selectmen appointed Fairfield Hills Master Plan Ad Hoc Committee; Volunteer Citizen Community Input Council reviewed master plan; Held 26 meetings open to the public; Sponsored a tour of the campus with between 350 and 400 attendees; Produced a video tour of the campus for broadcast on local access TV two; Administered a town-wide survey with 1000 responses. Special Zoning Fairfield Hospital Adaptive Reuse Zone and Aquafer Protection District Zoning VISIONING THE FUTURE OF THE FERNALD DEVELOPMENT CENTER 109 UConn Depot Campus Bergin Correctional Facilities (closed) Chaplin Cottage Community School of the Arts and Center for Clean Energy Engineering Ballard Institute of Puppetry 1860 MANSFIELD TRAINING CENTER TRAINING MANSFIELD None 1993 and Thompson Cudworth, Woodworth, Cottage Colonial Revival 1987 #87001513 500 acres 60 buildings abandoned Some buildings demolished; others Intsitutional UConn, State of Connecticut No Partial No Mansfield, CT Mansfield, 26,543 595 $48,888 Open Space Community Process Afforable Housing Adaptive Reuse Developers Current Use NRHP Listing Size Plan Style Disposition Architect Date Built Date Closed Population Density (per sq mile) Density (per Population Income Median Household Location Population Name