Acquisition and Annexation of the Warfield Complex
by the Town of Sykesville

Introduction The Town of Sykesville proposes to acquire and annex the Warfield Complex at the Springfield Hospital Center. The link between Sykesville and the Hospital Center is based on long standing historic, geographic, and economic ties. The Town desires to reconnect the historic link of Main Street that Sykesville and Springfield traditionally shared. The future development of the Warfield Complex will have a dramatic impact on the future viability of Sykesville. Development will impact employment, traffic, historic preservation, the environment, and property values.

Benefits of Acquisition/Annexation

Sykesville is the public entity best suited to oversee the future development of the Warfield Complex. As the "steward" of the site, Sykesville will: Preserve the Town's historic downtown economy by ensuring that development of the Warfield Complex is sensitive and complimentary to the existing downtown economy. Make the future development of the Warfield Complex a model project for the Governor's Smart Growth initiatives. Maintain a sense of community and place. Create additional connections between the Warfield Complex and the existing Town communities (roads, green ways, recreational facilities, etc.) Ensure development is compatible with the existing traditional design of Sykesville and the Warfield Complex and is consistent with the "Seven Visions" of the State Planning Act of 1992. Save the State $600,000 - $700,000 per year by eliminating its obligation to maintain the Warfield Complex (i.e. heating, utilities, building maintenance, landscaping, etc.). Develop a process, including a charrette, to create a master plan. The charrette will include broad citizen, government, and professional input. Establish design guidelines and standards to conserve and protect existing neighborhoods and ensure sound development. In partnership with the State and County Departments of Economic Development, promote the economic development of the Warfield Complex and the reuse of the existing historic buildings with the aid of federal, state, and local tax credit and preservation grant programs. Upon the sale of subdivided lots, the Town and the State will equally share all net proceeds.

Partnership

Following acquisition, the Town will assume ownership of, and maintenance responsibilities for, the Warfield Complex. Sykesville will maintain the property year round. Landscaping maintenance will consist primarily of maintaining lawns, trees, and shrubs. Upon annexation, Sykesville will extend Town services where applicable (i.e. police, sanitation, public works, etc.). The Town will develop a master plan of the Warfield Complex by sponsoring a collaborative planning session called a charrette. Following the development of a master plan, the Town will hire a marketing director to aggressively market the site. In addition, the Town will cooperatively work with the State of Maryland and Carroll County Department of Economic Development. The Warfield Complex will likely be subdivided to facilitate incremental development. When this occurs, the net proceeds of the sales of individual parcels will be shared equally between the State and Town. This project presents a significant opportunity for the formation of a partnership between the Town, State, County, and private sector. Through this cooperative partnership, we can promote a development that adheres to sensible development principles and makes economic sense while creating a vibrant community that will remain well into the 21st century.

Smart Growth

The State of Maryland has declared the Warfield Complex at the Springfield Hospital excess to its current needs. The Town of Sykesville is the public entity best suited to acquire, annex, and oversee future development of the Warfield Complex. Consistent with the Governor's Smart Growth initiative and The Economic Growth, Resource Protection, and Planning Act of 1992, Sykesville will promote compact, efficient, and sustainable development. The Town will implement the Seven Visions of the State Planning Act of 1992 in its planning which will constitute a comprehensive set of guiding principles for the future development. The Seven Visions are as follows: 1. Development is concentrated in suitable areas 2. Sensitive areas are protected 3. In rural areas, growth is directed to existing population centers and resource areas are protected 4. Stewardship of the Chesapeake Bay and the land is a universal ethic 5. Conservation of resources, including a reduction in resource consumption, is practiced 6. Economic growth is encouraged and regulatory mechanisms are streamlined 7. Funding mechanisms are addressed to achieve these visions Both Carroll County and the Town of Sykesville have master plans that favor development in and around existing towns. Reuse of the Warfield buildings within historic preservation standards coupled with sensitive new development based on the above principles would be compatible with State's and Town's land use goals and policies. The annexation and redevelopment of Warfield would also provide an effective venue in which to showcase the merits of the Governor's Smart Growth initiatives. Carroll County is one of the fastest growing counties in the state. Unfortunately, it is also one of the biggest offenders of suburban sprawl. Rather than directing economic and residential development into existing communities to strengthen our small towns and enhance the sense of place and community, Carroll County has experienced a two decade long explosion of suburban sprawl. The financial, cultural, and aesthetic costs of this sprawl have, in recent years, become all too clear. By annexing the Warfield Complex into Sykesville future development would stimulate an existing community and economy. Community services could be extended and provided cost efficiently, sprawl would be limited, and the existing community would remain vibrant and stable. Failing to annex into Sykesville would heighten the possibility of development occurring which would be incompatible with the existing Sykesville community. This would potentially have a catastrophic impact on Sykesville's historic downtown economy; sprawl would continue outside the Town, natural resources would be wasted, more costly and less effective services would be provided, and a sense of community and place would be lost.

Financing

The Town, in partnership with the State and County, can find and encourage a variety of financing alternatives for future development. Sykesville has designed and approved legislation for a special tax district to assist in financing infrastructure for commercial developments. Such a tax district could be tailored and offered for the Warfield Complex property. The Town has the authority to issue revenue bonds to assist those interested in investing in development at the Warfield Complex. This tool can provide significant savings to those interested in the reuse of existing buildings or the construction of new buildings. Currently, there exists a variety of federal, state, and local financing programs that are available for assisting with the rehabilitation of certified historic properties. Federal - The Federal Tax Reform Act of 1986, as revised, established a 20% federal tax credit for the substantial rehabilitation of historic buildings for commercial, industrial and rental residential purposes on qualified rehabilitation expenditures incurred in connection with a certified rehabilitation. A property may also be depreciated for non-residential property, less the full amount of the tax credit claimed. State - The State Income Tax Credit for Rehabilitation of Historic Property currently offers a 10% tax credit for the rehabilitation of residential and income-producing historic properties, on qualified rehabilitation expenditures incurred in connection with a certified rehabilitation. Effective January 1, 1998, this will increase to 15%. Local - Maryland State Legislation was passed in 1994 which enables municipalities to freeze property value assessments at pre-rehabilitation levels for a period of ten (10) years, for any certified historic structures. If passed by the Town of Sykesville, this has the potential to bring added financial incentive to this project for historic preservation and rehabilitation. These financial alternatives coupled with private and public financing can be significant redevelopment tools.

Charrette

Once the Town acquires and annexes the Warfield Complex its focus and efforts will turn toward drafting a master plan to guide its future development. One of the tools through which this master plan will be created is the charrette. Charrette is a French term that has come to mean working together for a short, intense design period. Instead of a linear, sequential manner of planning over several years, the charrette method seeks to condense this process from months or years into days or weeks. The charrette for the Warfield Complex will include experts in fields such as planning, design, finance, economics, and government working together with interested individuals and community groups. Additional guidance, such as the recently completed "Highest and Best Use Analysis" by Legg Mason, could also be included to yield the best final product. The charrette facilitators will assemble the participants along with drafting equipment, computers, copy machines, and telephones to make an instant, on-location design studio. The results of the charrette will give the plan a kind of mutual authorship shared by all who participate. This is especially important for those who later will formally review the plan. Having contributed to it, they are in a better position to both understand and support its rationale. The resulting product of the charrette is a master plan of which the whole community feels part ownership. The master plan for the Warfield Complex will include design standards and guidelines to conserve and protect existing neighborhoods and ensure sound development. Community involvement in the planning process will be critical to the success of the future development of Warfield.

Town, State, County Partnership

The State currently spends between $600,000 and $700,000 per year to heat and maintain the existing Warfield Complex buildings. Upon acquisition, Sykesville will assume responsibility for the maintenance of the property. It will minimize these costs by turning off any unnecessary utilities and making exterior repairs as needed to stabilize the buildings for future use. Sykesville will maintain the landscaping year round. Landscaping maintenance, for the most part, will consist of maintaining lawns, trees, and shrubs. This will save the state a considerable amount of money as well. With the completed master plan, the Town will begin the process of marketing the property and implementing the plan. This effort will include a cooperative relationship with the State of Maryland and Carroll County Departments of Economic Development. The Town, working in concert with the State and County, will aggressively market the property within the framework of the master plan. In addition to marketing Warfield, the Town intends to become a partner in the future development of the Warfield Complex. The site will likely be subdivided to facilitate incremental development. As parcels are sold, the proceeds of the sales will be shared equally between the State and Town.

Conclusion

The Town of Sykesville and the citizens of this area are genuinely focused and ready to champion the cause of the development of the Warfield Complex site. There is no other public or private entity with so much at stake. Sykesville is the rightful steward of this property. Sykesville has the concern, commitment, and dedication to ensure this property's successful development. This is a once in century opportunity for the Town and the State to join together for their mutual benefit.

History

In 1824, George Patterson inherited the 3000-acre Springfield estate, where he managed a successful farm. He specialized in raising Devon cattle, said to be the first herd of its type in the United States. In 1825, James Sykes purchased 1000 acres from Mr. Patterson, which included the future Town of Sykesville. Sykes operated several mills along the Patapsco River and a large four story stone hotel. In 1896, Frank Brown (former Governor of Maryland), who had purchased the Springfield estate from his cousin Florence Patterson Carroll, sold almost 1000 acres to the State for a hospital for the mentally ill, Springfield Hospital Center. The B&O railroad, the nation's first public railway, extended service to Sykesville in 1831. The local economy, primarily agribusiness, depended on the railroad to shop and receive goods and products. Passenger service was also important to Sykesville's early commerce. Baltimoreans flocked to Sykesville to escape the city heat in the summer. A June 1884 newspaper notes that there were 500 more applicants for lodging than could be supplied. Sykesville was known for its many springs which dotted the hills on the north side of the Patapsco river. The area derives some of its local names because of the springs, such as Springfield Hospital, Spout Hill Road, Springfield Presbyterian Church and Springfield Avenue.

Geography

Springfield Hospital, and other State property, share the Town's entire eastern boundary. In fact, the Town is surrounded on three sides by County (Carroll and Howard) or State property. Being close neighbors with Springfield Hospital has prompted cooperation in areas of mutual interest such as police aid, public water and sewer service, and land leases from Springfield, for such uses as a Town park, history museum, ball fields, trails and a community fire station. The future development of the Warfield Complex will have a dramatic impact on the future viability of Sykesville. Whether the impact is jobs, traffic, historic preservation, or any community planning issue, Sykesville's involvement in the decision-making process is critical.

Sykesville - an Existing Community

The Town of Sykesville is the public entity best suited to oversee the future development of the Warfield Complex. The natural extension of the Town limits, to include the Warfield buildings and surrounding areas, makes sense from both a planning and economic standpoint. Sykesville's participation concerning a redevelopment plan for this area will include achieving an adaptive reuse of the Warfield buildings, mixed with new compatible buildings and uses. Sykesville is an incorporated municipality that provides many valuable services to its residents. Once annexed, these services would be extended to the Warfield Complex. Currently, community services are lacking immediately outside of the Town's corporate limits. Police protection is marginal at best. Currently, Sykesville provides 24 hour police protection at an officer to resident ratio of 1:430 and is committed to continuing this high level of service. Outside the Town limits, however, although police coverage is provided on a 24 hour basis, the officer to resident ratio is several times larger than the Town's. Additionally, the Sykesville police are often requested to respond in cases where the County's resident troopers cannot. The Town, unlike any other public entity near the Warfield Complex, can offer police protection, solid waste collection, recycling, road maintenance, snow removal, park and open space maintenance, parks and recreation programs, planning, zoning, historic district commission and a truly responsive governing body. The Town can provide these services more effectively and cost efficiently than any other public entity. Most importantly, the Town could provide competent, focused and committed leadership to ensure that a master plan is drafted, that it is inclusive of public input in its creation, and that it is closely followed and adhered to in its implementation.

Historic Buildings - Preservation and Reuse

Sykesville actively supports the preservation and adaptive reuse of historic structures. Over 20 buildings have been restored or rehabilitated as part of the Town's historic preservation and commercial revitalization programs. The cornerstone to this effort has been the acquisition and restoration of the 1884 B&O Train Station into a fine dining restaurant and key Main Street attraction. Sykesville's historic area has been listed on the National Register of Historic Places and the Mayor and Town Council have adopted a local historic preservation ordinance. The existing buildings on the Warfield Complex date from between 1900 to 1929. They are all designed in the colonial revival style popular at the turn of the century. The buildings' exteriors are predominantly of red brick with white wood trim and black slate roofs. All of these structures would be eligible as a group for listing on the National and State Register of Historic Places. The fifteen historic buildings which compose the Warfield Complex contain an estimated total of 311,000 gross square feet. The physical condition of these buildings is generally good, with some isolated problem areas. All appear to be constructed of solid masonry bearing walls, with solid wood truss or rafter roof construction, and floor structures of either wood joist and beam or concrete plank. From a cursory walk-through, the buildings appear to be structurally sound and generally capable of taking office floor loading. A more thorough inspection, however, is required to fully assess condition and capacities. The buildings' interiors are generally open (from the residential wards) with little architectural finish or detail. These interior spaces lend themselves well to adaptive use, as they can be renovated without loss of historic fabric or interfering walls. The state currently spends $600,000 - $700,000 per year to heat and maintain the buildings on the Warfield Complex. Upon acquiring the Warfield Complex, Sykesville could alleviate these costs by turning off any unnecessary utilities and making exterior repairs as needed to stabilize the buildings for future use. For each existing building, comprehensive interior renovations will need to be completed, including new or fully upgraded fire egress stairways and corridors, accessible entrances, elevators, and restrooms for the physically disabled. New mechanical, HVAC, electrical and plumbing systems (and possibly sprinklers) will also be required for any new tenant. Some exterior rehabilitation may also be required. Even with these needed renovations, however, the cost for rehabilitation of the existing buildings would be approximately $50-60 per square foot, compared with $72-85 per square foot for comparable new structures, including demolition costs

Town Services

Police Protection 24-hour coverage Ratio - 1 officer for 430 residents Refuse and Recycling Collection Residential - twice weekly Commercial - twice weekly Streets and Land Maintenance Full service landscaping of Town parks and open space Full service snow and ice removal on Town streets and lots Planning and Zoning Authority Reviews, advises, and approves Town subdivisions based on Small Town Planning Guidelines Historic Preservation Historic District Commission reviews, advises and approves historic preservation projects Mayor and Town Council Six Council members and Mayor elected by Town citizens for four-year terms Population: 3,000 Dwellings: 1,071 Size: 2 Square Miles Assessable base: $56,216,447 FY97 Budget: $1,343,391 Distance to nearby cities: Baltimore City: 20 miles Washington, D.C.: 36 miles Frederick City: 30 miles Ellicott City: 15 miles Westminster: 18 mile

Thanks To:

The Town of Sykesville would like to thank the following for their assistance in the preparation of this proposal: Crystal Hill Advisors/Frederick Glassberg Business Planning & Financial Analysis 10015 Old Columbia Road, Columbia, Maryland 21046 (410) 381-4444 Diverse Management/James L. Schumacher Management & Planning Consultation P.O. Box 273, Union Bridge, Maryland 21791 (410) 848-3196 Duany, Plater-Zyberk/Mike Watkins Town Planners/Architects 320 Firehouse Lane, Gaithersburg, Maryland 20878 (301) 948-6223 Kann and Associates,Inc./Donald Kann Architecture/Planning/Preservation/Interior Design 207 East Redwood Street, Fourth Floor, Baltimore, Maryland 21202 (410) 234-0900 Traditional Neighborhood Design/Joseph Alfandre Land Use Planning & Development 10901 Bells Ridge Drive, Potomac, Maryland 20854 (301) 299-3774