UMASS/AMHERST I WARE, MASSACHUSETTS COMPREHENSIVE PLAN AND MODEL ZONING BY-LAW Prepared by : Lesley Ewing Sarah Fernandez Richard Hunt Georgianna Maxfield Christine Somogyi Department of Landscape, Architecture and Regional Planning University of Massachusetts Amherst, Massachusetts Digitized by the Internet Archive in 2015 https://archive.org/details/waremassachusettOOewin May 20, 1975 Town of Ware Town Hall Ware, MA Town of Ware, We here with transmit our Comprehensive Plan and Model Zoning By-Law for Ware, Massachusetts to the town of Ware. This report is intended to initiate a comprehensive planning process in Ware. It includes an inventory of the population, community facilities, economic base and land use. The inter- pretation and analysis which follows the inventory is meant to illustrate the methodology the people of Ware should use and the considerations which should be made in planning for the future of your town. We hope that this report will be a useful tool for those who will continue the planning process in Ware. Many groups will be participating in this process including the Planning Board and the Industrial Development Commission. The resources of the University of Massachusetts will also be made available for consultation and research. Possibly the Center for Community Renewal Studies could act as coordinator of all these groups. We would like to thank the town for cooperating with us in the preparation of this report. Yours very truly. Lesley Ev^ing, Sarah Fernandez, Richard Hunt, Georgianna Max- field and Christine Somogyi. ii This project was conducted under the New England Regional Field Service Program sponsored by P.A.C.E. Inc., Cambridge, Massa- chusetts . The study forming the basis for this publication was conducted pursuant to a contract with the Department of Housing and Ur- ban Development. The substance of such study is dedicated to the public. The authors are solely responsible for the accuracy of statements or interpretations contained herein. ACKNOWLEDGEMENTS We would like to gratefully acknowledge the assistance and cooperation offered to us by Morton Braun; William Canon; Ethan Gluck; Robert and Madeline Cebula ; Richard Pecenak and the Ware Planning Board; Anthony Shea and the Ware Conservation Commission; Earl Roy and the Police Department; Richard Winslow; Albert Clark and the Key Club; Curran Associates, Inc. Engineers and Planners, Northampton, Massachusetts; Aimer Huntley and Associates; Harry's Bakery; John Conn; Edward Beaudin; Dorothy Mapes and the Library Staff; John Harszy; Richard Hayden; and all the other people of Ware who have assisted us this year. iv TABLE OF CONTENTS TITLE PAGE i LETTER OF TRANSMITTAL ii PACE PAGE iii ACKNOWLEDGEMENTS iv TABLE OF CONTENTS V LIST OF MAPS vi LIST OF TABLES vii LIST OF FIGURES ix Chapter 1. INTRODUCTION 1 2. HISTORY 4 3. POPULATION 11 4. HOUSING 21 5. COMMUNITY FACILITIES 25 6. LAND USE 41 7. ECONOMIC BASE 50 8. TRANSPORTATION 6 9 9. FISCAL ANALYSIS 81 10. CAPITAL IMPROVEMENTS 91 11. GOALS AND RECOMMENDATIONS 95 BIBLIOGRAPHY 109 APPENDIX - Government Funding 112 SUPPLEMENT - Model Zoning By-Law V LIST OF MAPS Map Follows Page 1. Land Use Map 4 0 2. Slope Map 43 3. Floodplains and Wetlands 44 4. Groundwater Favorability ? 4 5 5. Soils Favorability for On Lot Sewage Disposal 46 6. Developable Land 47 7. Functional Classification of Roads 68 vi LIST OF TABLES Follows Page 1. Migration 14 2. Occupation of Head of Household by Percent 14 3. Age of Head of Household 14 4. Recreation Facilities By Classification and Population Ratio 33 5. Standards for Special Facilities 33 6. Space Standards for Neighborhood Parks 33 7. Space Standards for District Parks 33 8. Recreation Facilities in Ware 33 9. Land Use Changes 1951-1971 42 10. 1973 Average Annual Employment by Place of Employment (Employed Labor Force) 51 11. 1973 Manufacturing Employment by Place of Employment (Employed Labor Force) 51 12. Number of Firms and Payroll, 1960-1973, Ware Massachusetts 53 13. Number of Firms and Employment by Place of Employment, 1960-1973, Ware, Massachusetts 53 14. Percent Total Employment, Employed Labor Force, 1960-1973, Ware, Massachusetts 53 15. Absolute Change in Population and Employed Labor Force, 1960-1973, Ware Town and Springfield SMSA 53 16. Percent Change in Population and Employed Labor Force, 1960-1973, Ware Town and Springfield SMSA 53 17. Unemployment and Resident Labor Force, Ware Town, Ware Labor Market Area, Springfield SMSA, 1960-1973 56 18. Unemployment Survey, Resident Labor Force, Town of Ware, April, 1973 57 19. Regional Employment, by Place of Employment 58 20. Commuting Patterns: Labor Force Mobility, Ware Town, April, 1973 58 21. Work Destination, Resident Labor Force, Town of Ware, April, 1970 59 22. Average Annual Wage, Ware Town, Spring- field SMSA and State of Massachusetts, 1973. 60 23. Percent Change in Average Annual Wages, Ware Town, Springfield SMSA, 1970-1973 60 24. Average Annual Wage, Manufacturing Categories, Town of Ware, State of Massachusetts, 1973 60 vii LIST OF TABLES (cont'd.) Follows Page 25. Occupations, Resident Labor Force Ware Town, April, 197 0 61 26. System Characteristics 68 27. Changes in A.D.T. Vehicle Counts at Two Locations on Major Arterials 68 28. A.D.T. Vehicle Counts, Major Arterials, Outside CBD 68 29. A.D.T. Vehicle Counts and Traffic Accidents, Urban Major Arterials Outside the CBD 68 30. A.D.T. Vehicle Counts, Central Business District 73 31. A.D.T. Vehicle Counts and Traffic Accidents, Central Business District 73 32. Summary of Responses to Central Business District By-Pass Proposals by CBD Merchants 7 6 33. Major Local Sources of Revenue: Ware 81 34. Major Local Sources of Revenue: Ware Percent Distribution 81 35. Annual Receipts: Ware 81 36. Percentage Annual Receipts from Sources Indicated: Ware 81 37. Budget Expenditures: Ware 8 3 38. Percent Distribution of Budget Expendi- tures: Ware 8 3 39. Budget Changes in Actual and Constant Dollars: Ware 83 40. School Expenditures per Pupil for Selected Communities 84 41. Changes in Elements of Tax Base: Ware 8 6 42. Actual and Full Value Tax Rates for Selected Communities 86 43. Per Capita Equalized Valuation and Median Family Income for Selected Communities 8 6 44. Per Capita Net Debt for Selected Communities, 1972 88 45. Record of Outstanding Bonded Debt, July 1, 1974 88 viii LIST OF FIGURES Figure Follows Page 1. Population Pyramid - Town of Ware 17 2. Employment by Industry Category, 1973, Ware 51 3. Manufacturing Employment by Industry Category, 1973 , Ware 51 4. Relative Changes In Manufacturing Employment by Industry Category 54 5. Changes In Fiscal Elements of Ware 81 6. Changes in Distribution of Local Revenue Sources 8 2 7. Changes In Distribution of Annual Receipts 8 2 8. Changes In Distribution of Budget Expenditures: Ware 83 ix \ introduction I INTRODUCTION TO THE COMPREHENSIVE PLAN FOR WARE, MASSACHUSETTS Planning is an activity in which almost everyone engages. Individuals must decide what they want to do with their lives and how they will achieve their goals, families must plan and provide for all the needs of their members, and towns must decide what their goals are, what the needs of the residents are and how these needs and goals can be met. The need for a formal planning process increases as the unit being planned for increases. When the town is the unit being planned for, it is necessary to create a special agency, the planning board or commission, to oversee the development of the town. But it is also important for all the decision making agencies and people affected by those decisions to become involved in the planning process, to agree upon a set of goals and poli- cies and to work together to realize those goals. Many towns have adopted the practice of preparing compre- hensive plans as a means of coordinating the activities of all the agencies and individuals effecting and affected by the future of the town. The plan is either prepared by the local planning agency or by outside planning experts but the general format of the plan is usually the same. The plan performs two important functions. First, it deter- mines the present condition of the town and the direction the community is moving in and, second, the direction the town should be moving in based on the physical conditions of the land and the desires of the residents. The present conditions and trends occuring in the town are assessed by analyzing the population, the use of the land, the municipal facilities, i.e., the water and sewer systems, schools, fire department, recreation, etc., and the amount of money the 2 town has and how it uses it. This section of the plan is an in- ventory to determine where the town stands at the present moment. Plans for the future must be based on what is desired and what is possible. Residents are consulted as to whether they would like to maintain the present character of their town, or encourage its development into a residential community, a commer- cial or industrial center, or any other alternative. The develop- ment potential of a town is partially restricted by its physical limitations. Conditions which limit the developability of the land in town, such as severe slopes, flood prone areas, and un- suitable soils, are identified so that development can be diverted from those areas. It is important to bear in mind that the plan is one part of the planning process. It should be used as a monitor to keep track of the present conditions and the direction of movement of a town and, therefore, it must be periodically updated. The citizens of the town, the decision makers and the people affected by those decisions, should have a prominent role in the formulation and the reformulation of the plan in order for it to be a useful and meaningful tool for guiding the development of the town. The comprehensive plan for Ware is being prepared in several different stages. This document represents the first stage of the plan. It is a preliminary plan which includes the following: an inventory of the present conditions in Ware; a questionnaire which was circulated and analyzed to determine the general de- sires of the town residents; and tentative suggestions for the future development of the town based on our evaluation of the residents' desires and the physical capabilities of the land for development. We have also included, at the end of this report, a proposed zoning plan which may be adopted by the town as a means of acquiring more control over the development of the land. Subsequent stages in the preparation of the plan will allow for greater citizen participation in deciding upon the goals of the town and developing a strategy to work towards those goals. 3 This document was prepared by a team of graduate students from the Department of Landscape Architecture and Regional Planning at the University of Massachusetts in Amherst. I g i i I I g 1 g history Regional History 4 Town History 8 Regional History The region surrounding the Quabbin Reservoir possesses a diverse natural environment and rich cultural history. The var- iety of terrain, soils, and water resources in this area has led to many different agricultural, industrial, and residential uses of the land. The history of this region is preserved not only in written works, but can be observed in land use patterns devel- oped by early settlements that are still evident today. This regional history will briefly discuss the development of counties and towns, the settlers, agriculture, industrial development, transportation, and the formation of the Quabbin Reservoir. One of the first historical developments in this region was the creation of Hampshire County in 1662, by order of the General Court in Boston. Although centered around Springfield, Northampton, and Hadley, most of Western Massachusetts was considered part of this county. Settlers soon began to move onto land purchased from the Indians and form agricultural communities. With increased settlement and population growth, Hampshire County was divided into more manageable areas by creating new counties of Worcester in 1730, Berkshire in 1761, Franklin in 1811, and finally Hampden in 1812. The process of town settlement and incorporation was started with Brookfield in 1673, and continued with changes in town compo- sition and borders through the 1930 's. State borders were under- going considerable change in 1712, when a surveying error created the impression that Woodstock, Somers, and Enfield, Connecticut, were part of Massachusetts. In an "equivalent lands" trade, Mass- achusetts gave Belchertown, Pelham, and parts of Ware and Enfield to Connecticut. This confusing situation was eventually resolved by 17 27, and the towns returned to their original states. 5 The settlers who moved into this region were generally second or third generation colonists from other parts of Massachusetts, although a group of Scottish Presbyterians did settle Pelham in 1738. In the nineteenth century, Irish, French Canadian, and Pol- ish immigrants were attracted by the job openings created by local industry and railroad construction; but the first settlers were drawn by land grants and offers of free farm land. Crops grown on the newly cleared land supplemented with fish and game from the surrounding wildlands provided an adequate living, but with little surplus . The Revolutionary War brought an economic crisis for the settlers of the region. While the people were willing to take an active part in the fight against England, the taxes necessary to support the Colonial Army proved too great a burden for their small incomes. Oppressive taxes, individual and town debts, and a general lack of money in the region led to widespread tax delin- quency. When the legislatures in the counties threatened to auc- tion the goods and property of the citizens' to raise money for the taxes, widespread rebellion occurred. On January 24, 1787, Captain Daniel Shays led over 1,000 men from Palmer to Springfield. They were met by armed militia commanded by General Lincoln. One volley was fired and three of Shays' men were killed and one wound- ed. The insurgents fled in confusion, ending the rebellion. Despite the economic hardships, this type of subsistence agriculture was predominant until 1860, when dairy farming began to develop. Dairy farming, cheese factories, and creameries were important to the economy of the region until 1915, when a number of factors, including strict state health regulations, led to a decline in this type of production. Other agricultural products that have been produced with varying degrees of success are fruit — primarily apples, strawberries, and blueberries, poultry, and silk. Industrial development has been greatly affected by the water resources of the region. The rivers flowing through this area have provided economical sources of power, and various types of mills and factories have been built along the river banks. As early as 17 93, the town of Warren had two grist mills, a sawmill. 6 One of the most important developments in the region's his- tory was the creation of the Quabbin Reservoir. To insure an adequate water supply for the metropolitan Boston area, the Mass- achusetts Legislature voted on April 26, 1927, to allow the Metro- politan District Commission to dam the Swift River, flood the river valley, and create a storage reservoir. Land needed for the project was acquired by the M.D.C. during the late 1920 's and 1930' s. The area to be flooded was evacuated in 1937, and leveled in 1938. Trees, houses, even cemetaries, were removed before the area was submerged. The towns of Enfield, Prescott, Greenwich, Dana, and Millington were dis-incorporated , and parts of the towns that were not under water were annexed by neighboring towns . New Salem and Petersham acquired parts of Greenwich, Enfield, and Prescott. Other portions of Enfield were annexed by Pelham and Belchertown. The Metropolitan District Commission also acquired extensive watershed lands for the Quabbin Reservoir in many of the surrounding towns. The effects of the formation of the reser- voir cannot be adequately described here, but note should be made of the disappearance of towns as governmental units, related changes in the remaining town boundaries, elimination of industries and jobs in the old towns, and the creation of jobs due to the con- struction of the dam and operation of the reservoir. Today, the region still exhibits a variety of cultural and environmental characteristics that were part of its early his- tory and development. Some towns, like Granby and Wendell, are still primarily agricultural. Others continue to rely on the industrial base they began to develop in the nineteenth century. Ware was one of the first towns in the region to develop indus- trially, and in 1971, it was still primarily industrial with 24 manufacturing firms in the town. Industries are no longer de- pendent on the water power they originally used, but inertia and the presence of a trained labor force keep them from moving. Many towns now fulfill an increasingly common role of res- idential communities. Increased numbers of professional and ser- vice industry workers live in one town and commute to a neighboring 7 a scythe factory, and a forge. The Swift River has powered sev- eral saw mills for the lumbering industry in the area, and the factories along the Ware River are considered essential to the industrial base of Ware. The Monson Woolen Mills and the Hampden Cotton Manufacturing Company, built in 1813, are on the banks of the Chicopee River. A wide variety of goods have been pro- duced by the factories in this area, including leather, tools, paper, sewing machines, furniture, castings, and textiles. Road transportation in this region was originally based on stage roads that were little more than enlarged Indian paths. Range roads also existed, connecting townships and providing ac- cess to tracts of land. Major trade routes did develop, such as the Bay Path, which ran through Belcher town. Although taverns and open houses provided some services and comforts to travelers, travel was probably difficult and unpleasant until the formation of turnpike corporations after 1800. Corporations were allowed to collect tolls to pay for road maintenance and improvement. Several modern state highways provide east-west, and north-south travel routes. The Mass Pike or Interstate 90 also connects with the roads of the region providing easy travel to the major cities in the state. Several rail lines pass through the region and have served several towns in passenger and freight capacities. While rail- roads have followed industrialization to some extent, they have also been a factor in promoting development by opening up new areas that were previously too isolated for manufacturing. After its construction in 1840, the Boston and Albany Railroad (now known as the Penn Central) was largely responsible for the indus- trial growth of Palmer. When a branch line was built to the north ern part of Monson in 1850, the output of the granite industry in the area increased dramatically. Another effect of the railroads, previously mentioned in the discussion of settlers, was the set- tling of ethnic groups originally involved in rail construction within the region. The other major rail lines were the New London Northern, Springfield, Athol, and Northeastern, and the Boston and Maine. 8 town where they work. Improved roads and larger numbers of jobs in these areas have been major factors in the development of the residential community. Town History The first permanent settlers moved into the territory now known as Ware in 17 29. They came from Brookfield to the east and from Hadley to the north-west. Although there was some agri- cultural activity in the area, early settlement developed slowly because the soil was not particularly productive. The major at- traction to the settlers was the streams, which offered water power sites suitable for the easy establishment of mills. / Prior to the year 1742, when the Ware River Precinct or Parish came into existence, the territory of Ware was part of a section of Hampshire County known as the Elbow Tract, or the Elbows, named for the meandering bends in the Ware and Quabog rivers. This tract comprised the lands of the present towns of Palmer and Ware. The town takes its name from the river that flows along the eastern side of its territory. The Indians named this river the Nenameseck meaning fishing basket or fishing weir - hence the name Ware. Saw and grist mills were established at the falls on the Ware River around 17 29. These are believed to have been the ear- liest mills within the Ware territory. Between 1730 and 1840 the mills grew slowly in number and variety. A map of 1830 shows an iron furnace, machine shop, cotton, woolen and grist mills grouped around falls at the village./ The mills steadily drew the people from the fields to the factories and Ware soon became one of the first mill towns with the greater proportion of its economy rooted in manufacturing. Ware's economy was based upon the mills and the town ex- perienced several lean periods when trouble befell them. Many early mills were destroyed by fire, others folded under external economic forces. Much of this was remedied when the majority of the mills were combined and incorporated into three concerns: the Otis Company, the George H. Gilbert Manufacturing Company 9 and the Charles A. Stevens Company. All three companies manu- factured textiles. Over the years the mill owners built a great many tenements and several company stores. The early settlers were of two different and distinct nation- alities, the English and the Scotch-Irish. The two classes did not get along until the second generation. The people were very poor and this is continually referred to in old documents. As the mills grew in size beginning in the 1840 's and 1850 's a large number of foreign workers came into Ware. These people were Polish, French Canadian and Irish. Throughout the years this has caused some tension in the community regarding competition for employ- ment and in other areas of community life. Ware was situated on several main east-west and north-south routes in the state. But, since a number of roads were privately owned and operated as turnpikes, it was very expensive to bring goods over land. This explains why Ware, as an isolated community, developed a whole series of local industries sufficient for local needs. The establishment of a branch of the Boston and Albany Railroad along the bank of the Ware River in 18 7 0 was a great boost to the town. This was followed by the Massachusetts Cen- tral which formed the southern division of the Boston and Maine Railroad. The coming of the railroad made Ware less subject to the economic fluctuations of the surrounding communities. Ware's zenith of productive existence was from 1870, the introduction of the railroads, until 1921, after World War I. The town was the trading and distributing center of the surround- ing area. Ware was still growing as an industrial center with existing company expansions and the establishment of new manufac- turing concerns. The textile slump, experienced throughout New England, began in 1922. The three major companies, Otis, George H. Gilbert and Charles A. Stevens were under great pressure. Earlier, the Gilbert and Steven companies had merged. This was the first concern that announced a reduction of wages and shortened work schedule, which affected over 1,000 employees. Four years later the plant closed due to continued slowness in the wholesale woolen market. 10 The Otis Company, the largest single employer of Ware peo- ple, was the next to announce a reduction of wages. This resulted in a strike in which the mills were closed for five months. The outcome of the strike seriously rocked the economy of the area. The Otis Company eventually merged with other companies in Mass- achusetts and New Hampshire. The plant remained operative, but on a limited scale, until 1937 when the company was finally liq- uidated . Ware was still suffering from the depression when a devas- tating flood and hurricane in 1938 brought the community close to complete financial collapse. The citizens of Ware combined their efforts to form Ware Industries in an attempt to provide sources of employment by inducing small industries to occupy the spaces formerly occupied by the mills. Although beset by many troubles, by 1941 Ware Industries was operating successfully and paying dividends. There was a diversification of manufacturing and new industries moved into town. Ware proudly acquired the nickname of the "town that couldn' be licked." In the early 1950 's employment in the Ware area was at its highest level in many years except during the period of World War II. Ware Industries, Inc. continued to be the most important of the town's businesses. Attempts were made throughout the decade to unionize the various businesses in Ware, but as a rule the workers were content in their employment and rejected the efforts of unionizers. In spite of the gains of the Fifties, the 1960 's brought increasingly high unemployment. Business and industry declined and population remained stable. Ware remained a core trading center so far as the nearby towns were concerned, but the majority of the employment still centered around manufacturing as it had since the town came into existence. population Population Growth 12 Study of New Residential Developments 14 Sources of Population Growth 15 Age and Sex Distribution 17 Household Size 18 Population Forecasts 18 POPULATION In planning for the future, it is important to look at population characteristics, for there are strong interrelation- ships between these and other factors. An increase in population means an increased need for community facilities, housing and jobs, and, likewise, an increase in employment opportunities or housing might result in a growing population. It is also impor- tant to look specifically at certain subgroups of the population, for people of different ages or at different stages in life have different needs that must be met by the town. Four groups will be considered here, two of which relate to age : 1) the school-age population which will mean the subgroup in the 5-14 age range. Educational and recreational facilities for youth must be re-examined in terms of growth changes in this group. 2) the elderly population including those 65 years of age and older. Changes in the elderly population will necessitate a re-evaluation of the programs and facilities planned for the town's senior citizens. The second two relate to stage of life and are derived from the following distribution, which is based on a nationwide survey : Percentage Distribution of Age of Head of Families, 1960 Age of Head Owner Renter Other 18 to 24 years 14% 70% 16% 25 to 34 years 44 50 6 35 to 44 years 64 33 3 45 to 54 years 69 27 4 55 to 64 years 62 29 9 6 5 years and over 65 27 8 Source: Survey Research Center, 1960 Survey of Consumer Finances . 12 It can be seen that heads of households in the 18-24 age group are primarily renters (70%) , those 25-44 are in the transitional stage of buying homes, and those 4 5-54 comprise the group with the greatest percentage of home ownership. Thus the two other groups to be considered are: 3) the primary rental age population, those 18-24 years of age. While a small percentage of household heads of this age are homeowners, most (70% nationally in 1960) are tenants. Growth of this group would thus suggest a need for apartment units . 4) the primary house-buying population, those 25-44 years of age, who are in the market for owner-occupied dwellings. The availability of single-family units would have to be considered if there were significant changes in this group. This section of the plan will deal with past and present population characteristics for these are significant in terms of the town's growth pattern. However, it must be stressed that past trends in population will not continue unless all factors influencing population change remain the same. Population fore- casts, therefore, are dependent on consideration of the town's economic, physical and social characteristics and potentials, for these bear directly on the probability of growth or decline. Population Growth Ware : Year Population 10-yr. Growth 1900 8263 + 6.2 1910 8774 - 2.8 1920 8525 -13. 4 1930 7385 + 2.3 1940 7557 - 0.5 1950 7517 0.0 1960 7517 + 8.9 1970 8187 In the 7 0-year period since 1900, the population of Ware has remained relatively stable. Since the period of 1900-1910, when immigrants settling in northeastern industrial areas re- sulted in over a b percent increase in Ware's population, the number of residents has either been declining or has been in- creasing only slightly until the last decade. From 1960 to 1970 there has been almost a 9 percent growth rate, at least in part a result of an increase in residential development, especially new subdivisions along Route 32, and desirability of Ware to commuters to nearby employment centers. Population Town 1900 1910 1920 1930 1940 1950 1960 1970 Ware 8263 8774 8525 7385 7557 7517 7517 9187 Belchertown 2292 2054 2058 3139 3503 4487 5186 5936 Hardwick 3203 3524 3085 2460 2154 2348 2340 2379 New Braintree 500 464 394 407 439 478 509 631 New Salem 807 639 512 414 357 392 397 474 Palmer 7801 8610 9896 9577 9149 9533 10358 11680 Pelham 462 467 503 455 568 579 805 937 Petersham 853 757 642 660 923 814 929 1014 Warren 4417 4188 3467 3765 3531 3406 3383 3633 W. Brookfield 1448 1327 1281 1255 1387 1674 2053 2653 Total 30046 29804 30363 29517 29568 31228 33438 37524 Comparing the trends in Ware to the changes occurring in the area including Ware and the surrounding towns, it can be seen that the area-wide population has, until recently, re- mained extremely stable implying that while the population of one town in the region may have decreased, an increase in anoth er town maintained the region-wide population stability. The region as a whole was relatively unaffected by such national in fluences as the economic prosperity of the twenties which re- sulted in large population increases in many communities or the depression of the thirties which in many areas resulted in population decline. Recently, the rate of growth for the area has been in- creasing, from 5.6 percent in 194 0-1950, to 7.1 percent in 1950-1960, and to 12.2 percent in 1960-1970. This is parti- cularly important for Ware because in light of the fact that employment opportunities have not increased significantly, it must be assumed either 1) that people who are unemployed are not leaving the area or 2) that the area is becoming more at- tractive as a commuter residence, or both. The characteristics of residents of Highland Village and Beaver Lake homes, deter- mined from a study of new residential developments, indicate that both assumptions are at least to some extent true. Study of New Residential Developments * Five areas were studied with respect to the following characteristics : 1) age of head of household 2) occupation of head of household 3) former residence a) percent moved within last year b) location from which they migrated Streets studied in the Beaver Lake area are Duck Pond Road, Beaver Road, Shoreline Drive, Horseshoe Circle, Ramblewood Drive, Beaver Lake Road and Beach Road. Residences are single-family, owner-occupied homes. Highland Village is a 105-unit rental housing complex on Boulder Road and Stonypoint Drive. Building permit issued in 1971. Provides moderate and low income housing units. The Elderly Housing Project, located off Monroe Street, contains 56 units. Building permit issued in 1972. Warebrook Village is a multi-family housing complex lo- cated on Eagle Street. Containing 60 units, it was only par- tially occupied at the time of the 1974 street listing. Build- ing permit issued in 1972. There are a number of new subdivisions off Route 3 2 and two streets with new residents, Klug Avenue and Kingsberry Lane, were selected as representative of these areas. The houses are single-family, owner-occupied. Ware *Information for Street Listing. this study was obtained from the 1974 Table 1 - Migration Beaver Highland Elderly Warebrook Route 32 Lake Village Housing Village Subdivisions % of residents with different address pre- vious year Of new residents % from Ware Town Other Other Hampshire County Springf ield-Holyoke- Chicopee Palmer Town Other Hampden County Worcester City Other Worcester County Other Massachusetts Out of State 48% 23 77 37 11 2 8 19 100% 54 46 15 3 1 17 2 6 100% 60 40 5 5 3 2 18 1 3 100% 23 77 15 23 23 8 95% 40 60 5 15 28 Table 1 shows that over half of all new household heads in Ware included in the study were not previous residents of Ware but in-migrants from other towns. With a decline rather than in- crease in employment opportunities in Ware, it is likely that many of these new residents commute elsewhere for work. It is thus apparent that one of Ware's functions is as a commuter resi- dence and that this function may become increasingly important if employment opportunities do not increase and the rural residential quality of the town is developed. Table 2 Occupation of Head of Household by Percent Beaver Highland Elderly Warebrook Route 3 2 Lake Village Housing Village Subdiv Professional, technical 29 6 0 25 11 Managers, officials, proprietors 23 2 0 34 5 Clerical, sales 8 7 0 8 0 Craftsmen, foremen 20 3 0 0 17 Operatives 4 33 0 25 28 Sprvi ce Worker*? 4 6 0 0 17 Laborers 4 10 0 0 22 Farmers, farm managers 2 0 0 0 0 Retired 6 10 100 8 0 Unemployed 0 13 0 0 0 Housekeeper 0 8 0 0 0 The occupations of new residents shown in Table 2 further suggest that many are commuters to other towns, for even with the lack of new jobs in Ware, all new single-family homeowners are employed. Unemployment is indicated only in the rental units. Table 3 Age of Head of Household Beaver Highland Elderly Warebrook Route 32 Lake Village Housing Village Subdivisions Percent under 25 2 43 0 17 17 25 - 34 47 33 0 50 56 35-44 21 2 0 17 5 45 - 54 18 6 0 8 0 55 - 64 6 6 8 8 0 65 and over 6 10 92 8 0 The age of renters vs. age of homeowners is shown in Table 3. While only 6 percent of heads of households in new single-family homes are under 25, approximately 40 percent of tenants in new multi-family units (excluding the elderly housing project) are under 25. 15 Sources of Population Growth The population of a community changes as the result of four factors: births, deaths, in-migration and out-migration. Births contribute to population increase while at the same time deaths of people of all ages contribute to its decrease. Similarly, people are moving to the community while others are leaving. The balance of the forces results in the overall population growth or decline. Natural increase is the balance between births and deaths. Despite the fact that Ware's birth rate has declined from an average of 8.6 births per year per 100 women of childbearing age for 1955-65 to an average of 7.9 births for the period 1965-70, births still exceed deaths and natural increase therefore continues to contribute to population increase. Of the population growth of 300 from 1965 to 1970, approximately 45% was the result of natural increase. Net migration is the difference between the number of people moving to an area and the number of people leaving it. It is computed by "aging" the subgroups of the population the appro- priate number of years, subtracting deaths by age, and adding births which occurred during the time interval considered. A comparison is then made between the number of people who would have been present had no migration occurred and the actual num- ber of people present at the end of the time interval. The difference is the net migration. In the ten year period between 1955 and 1965, there was a total net migration of -160. This means that if no migration had taken place during that period and the only changes occurring were due to natural increase, the population in 1965 would have been greater by 160 people. In the five year period from 1965 to 1970, net migration was +163. By examining migration rates for specific subgroups, the movement accounting for the reversal of trends from the '55- '65 period to the '6 5- '70 period becomes more apparent. Following are the 5-year net migration rates by age for the two time intervals being considered. The numbers indicate the 16 percentage by which each age group increased or decreased as a result of migration over a five year period. Five-year net migration rates by age average 1955-65 1965-70 % net migration % net migration 0-4 -0.5 + 4.7 5-9 -0.8 + 15.4 10-14 +3.0 +10.3 15-19 +1.5 - 6.3 20-24 -3.2 -16.2 25-29 -10.2 - 3.2 30-34 -3.6 + 4.2 35-39 -4 . 0 + 3.7 40-44 +1.1 + 6.3 45-49 -1.6 + 4.1 50-54 + 0.7 + 5.3 55-59 -1.4 + 0.5 60-64 -1.9 + 8.3 65 and over + 0.9 - 1.4 Looking at the school-age population, there was a large influx of school-age children in '65- '70 compared to '55- '65. In '65- '70 there was a net in-migration of over 150 children ages 5-14 alone. Net out-migration of the rental age population continued over the two time periods, increasing in '6 5- '70. Whereas in '55- '65 there was also a net out-migration of primary home-buying and home-owning age populations, there was a net in-migration of these groups in '65- '70. The elderly population showed no significant net migration for either time interval. The figures indicate, then, that while young people, proba- bly single adults or young married couples without children, moved away from Ware during both periods, in '65- '70 there was a net in-migration of older adults and children, probably representing 17 families with school-age children, unmatched in '55- '65. Movement of young lower income people tends to be local — many young in-migrants to Ware are from nearby towns in Hampden and Worcester counties. Older, higher income people tend to move longer distances -- in recent years, many have come to Ware from the Spr ingf ield-Holyoke-Chicopee area and from out of state. Age and Sex Distribution In order to look at percentage changes in the age and sex composition of the Ware population, a population pyramid has been constructed, comparing the 1955, 1965 and 1970 figures. (The 1955 and 1965 populations are state census figures whereas the 197 0 population is from the federal census. Some problems exist in comparability; however, no other recent federal census gives age and sex breakdowns for the whole town of Ware.) The pyramid is constructed by first determining the percentage of the total population falling in each age-sex category and then plotting the percentages on a graph. The percent that each fe- male age group is of the total is plotted on the right and the percentages for males on the left. As the population ages, bulges that appeared in one age group at the beginning of the time period considered will appear in an older age group at the end. For example, the large per- centage of 40-44 year olds in 1955 is reflected in the large per- centage of 55-59 year olds in 1970. While migration may affect the pattern — for example, the percentage of the population in the 20-24 year old group is less than would be expected by look- ing at the 5-9 group of 1955 — an overall picture of the age of the future populations can be obtained by moving the groups up the appropriate number of years. In comparing the pyramids for the years shown, it can be seen that the percentage of children has been increasing slight- ly since 1955, with the 0-14 age group accounting for 24.3 per- cent of the population in 1955 and 25.9 percent in 1970. The Figure 1 65+ 1 60- Y - i ' I : 64 ' 1 • 1 ' — ^ 50- : I ' 1 54 1 ' . ^ ^^ 45- ; • I, I 4^ : 1 • 1 • ■ 40- I , I J 44 l ' 35- 39 »— 1 30- i 1 ■ 34 .,-! 29 z:. ! — :-t " 1 • ■=rr=: 19 -r rq ;5-9 I. I I *^ — '• — —T"^ — '■ — T— ^ — '-—n — '■ r- — — — f— - — ' 1 — I \ 1 1 1 1 6.0 5.0 4.0 3.0 2.0 1,0 0 1»0 2.0 3.0 4.0 5.0 6.0 7.0 8.0 Male ■ Female I- -I 1 I I ^ 1955 1965 1970 Population Pyramid - Town of Ware r 18 rental age population has increased in percentage from 5.0 per- cent in 1955 to 7.0 percent in 1970 while the primary house-buy- ing population has decreased from 31.1 percent in 1955 to 20.6 percent in 1970. The percentage of the population 65 and over has decreased slightly from 12.0 percent in 1955 to 11.3 percent in 1970. Thus while out-migration of rental age and in-migration of home-buying age groups have been significant in the last five years, the natural growth of the population has resulted in a pattern different from what would be expected by looking at migra- tory trends alone. Household Size The average household size in Ware has decreased from 3.09 people per household in 1960 to 2.92 in 1970. 1960 - Ware Town - number of households: 2394 population of households: 7400 average number of people per household: 3.09 197 0 - Ware Town - number of households: 27 91 population of households: 8161 average number of people per household: 2.92 (1970 U.S. Census of Population) A decrease in household size may be the result of increased availability of multi-family rental housing with efficiency and/ or one bedroom units which facilitate the "un-doubling" of house- holds. With the passing of the multi-family by-law in 1973 for- bidding the building of any apartment houses, condominiums, etc., in Ware, it may be expected that the household size will not change significantly in the future except, perhaps, with a rap- idly declining birth rate. Population Forecasts Population forecasts, in order to be meaningful, must inte- grate population characteristics with physical features and economic 19 and social trends in the community and throughout the region. They must reflect the town's attitude toward growth and plans for accommodating future growth as well as the probability of future industrial or residential development in the town if it is de- sired. The method used here is one which assumes that past trends in Ware will continue in the future or that forces which serve to attract residents to the town or encourage them to leave will counterbalance to produce the same result. In order to forecast the 1980 population, the 1970 population was "aged" ten years and the birth, survival and migration rates derived from 1960-1970 data were applied. The result is the following projected age breakdown for 1980: Age 1970 % 1980 g. ■5 0-4 651 7.9 629 7.3 5-14 1468 17. 0 1518 17. 5 15-24 1195 14.6 1323 15.3 25-34 865 10.6 1070 12.4 35-44 822 10. 0 931 10.7 45-54 1243 15.2 852 9.8 55-64 1014 12.4 1176 13.6 65 + 929 11.3 1160 13.4 Total 8187 8659 A comparison of trends in Ware from 1960-1970 and from 1970 to the present makes the projection more meaningful. 1) From 1960-1970 there was a growth rate of 8.9 per- cent, the highest 10-year growth rate since 1900- 1910. The change projected from 1970-1980 re- sults in a 5.8 percent growth rate, still higher than any rate since 1900-1910. 2) The unemployment rate in Ware and the region is higher now than it was in 1960-1970, reflective of the nation-wide recession. 3) In 1960-1970, there was an average of 40 housing units built per year compared to 34 per year from 1950-59 and 20 per year from 1940-49. In the early 1970' s, building permits for single family homes were issued as follows (numbers are approximate): 1971 - 78 1972 - 54 1973 - 52 1/74-10/74 - 27 20 Also, over 200 units in multi-family dwellings were built. 4) In 1973, a by-law was passed which prohibits the building of multi-family dwellings. Thus while some forces (unemployment, ban on apartment construc- tion) were and will be negative influences on population growth in 1970-1980 compared to 1960-1970, others (single-family resi- dential development) were positive influences. If changes occur nationally, if the economic situation im- proves or construction costs go down, for example, the forecast must be adjusted; but more importantly, if Ware makes any major decisions on future development of land within its borders or if region-wide land use decisions are made, the suitability of the forecast method must be re-evaluated. Population forecasts must be flexible, and while it appears now that a slowly decli- ning growth rate is most probable, any major change in trends may strongly affect that growth pattern. housing Survey 21 Vacancy Rate 22 Rent-Income Comparison 23 I HOUSING Two characteristics of a town's housing supply are most important in terns of land use planning: the number of available units and the price of those units. There must be a sufficient number of dwellings to comfortably accommodate present residents and future in-migrants to the town and to allow them some choice of residence. Houses and apartments must also be affordable to the residents of the town, a common standard being that no more than 25 percent of a household's income should be used for pro- vision of housing. The cost of housing as compared to income levels within the town is thus an important consideration. While an evaluation of housing quality, the availability of plumbing facilities and soundness of structure, for example, is also crucial in an analysis of a town's housing supply, it does not relate directly to the planning of residential land uses except in cases of extreme blight not to be found in Ware. Thus this discussion of housing will be limited to an evaluation of the supply in terms of numbers and price. Survey In 19 70 in the town of Ware there were 2,900 housing units of which approximately 60 percent were owner-occupied and 4 0 percent renter-occupied. Of the owner-occupied units, the median value was $16,900, with almost 75 percent falling in the $10,000- 25,000 price range. Of the rental units, the median rent was $51, with over 80 percent of the rents below $80. There were 3.2 persons per housing unit in owner-occupied dwellings and 2.5 in rental units. Approximately 75 percent of the housing was in structures containing one or two units, with only about 10 percent of the 22 total housing stock in greater than five unit complexes. In 19 70, there were no developments with more than 50 units though some have been completed since that time. Vacancy Rate Of Ware's 2,9 00 housing units, 2.6 percent were vacant and available for occupancy in 1970. This is higher than Belcher- town and slightly lower than Palmer which had vacancy rates of 2.2 percent and 2.8 percent respectively. The rate was higher for rental units, with 5.6 percent being vacant. Belchertown had fewer vacant rental units, only 4.4 percent, and Palmer had more, 7.5 percent. The median rent asked for the vacant for rent units in Ware was $52, approximately the same as the contract rent for occupied units. In Belchertown, the median rent asked was $113 and in Palmer, $60. Almost 40 percent of Ware's vacant rental units had been unoccupied for less than two months, com- pared to 50 percent in Belchertown and 25 percent in Palmer. Only a few housing units v;ere for sale in all three towns. Of the 2,900 housing units in Ware, only 13 were vacant for sale, with the median price asked being $13,800. The median price asked in Belchertown was $20,400 and in Palmer, $25,000. In terms of future housing requirements, there appears to be little need for extensive apartment construction in Ware unless changes occur which result in a large influx of people to the town. The growth rate predicted for 1970-1980 results in an increase of only approximately 160 households, and with consideration of the vacancy rate for rental units and the extent of apartment construc- tion from 1970-1973, the rental supply seems adequate. With the low availability of vacant for sale housing, the emphasis in the future should be in this area. In 1973, the Town Meeting of Ware passed a bylaw prohibiting the construction of multi-family dwellings in the town. It appears from the survey on goals that most residents of the town still favor this bylaw, for while almost 60 percent of those surveyed recommended the provision of more housing in the town, 23 less than 10 percent favored the provision of multi- family homes. As long as sufficient rental units are available, there is no reason for the town to choose a housing policy inconsistent with the wishes of its residents. Rent- Income Comparison The second consideration is whether or not the available housing units are affordable to the people living in them. If households are forced to pay more than 25 percent of their income for housing, there is a problem and the availability of low-rent units must be evaluated. In 19 70, of those households with a yearly income of under $5,000, approximately only one fourth were in housing, they could afford as per the above definition. Almost half were paying more than 35 percent of their yearly income. For other income groups, rents were basically within the affordable price range: Percent of Income Group Spending Less than 25 Percent of Yearly Income on Housing Income Per Cent Less than $5,000 26.1% $5,000 - $9,999 96.1% $10,000 - $14,999 100.0% $15,000 or more 100.0% Since 1970, low- rent and rent subsidized apartments have been built in Ware. These include 56 apartments for the elderly with an average monthly rent of less than $50.00 and a 110-unit com- plex operating under the MHFA. Of these units, 25-40 percent are available to those qualifying for rent subsidies. There has been an effort, then, to eliminate the need for low-rent housing. However, even if it were assumed that all of the rent-subsidized and elderly housing units were occupied by Ware residents in greatest need of low rent housing, that need, while decreased, would not have been eliminated. With that assumption, households with income less than $5,000 in 1970 would be paying the following percentages of their income for housing: 24 1970 Households with new low-rent housing number % number % Rent less than 2 5% 25-34% 35% or more 89 26.1 189 55.4 83 24.3 83 24.3 169 49.6 69 20.2 Slightly less than half of the households would still be paying more than they could afford. To further increase the problem, not all residents of the new low-cost housing units are former residents of Ware; the study of new residential development indi- cated that approximately 40% of these residents were not from Ware. In the survey on goals, a third of those surveyed expressed a need for more low-income housing in the town. If this need is real, as it appears to be, the town residents will have to weigh their desire for no new apartment construction against the need for specifically low-rent apartments in determining the best housing policy for the town. community facilities School Facilities 25 Recreation Facilities 31 Library 3 5 Fire Department 3 6 Water Facilities 37 Sewer Facilities 39 Hospital 39 I I i p i I f I I I I COMMUNITY FACILITIES Community facilities are various services which are oper- ated for the benefit of the community. Some of these services are necessary — such as providing the townspeople with water — and other services are desirable for their cultural and educa- tional benefits. More and more services are changing from being desirable to being necessary and these designations are very tem- poral. Two hundred years ago it would have been a luxury for Ware to have any type of school; today the school facilities have become an integral part of the town. In the following section, we explore many of the community facilities in Ware, the schools, the recreation areas, the library, the fire department, water and sewer facilities, and the hospital. Our main concern is with the physical aspects of these services — the extent of the water mains, the availability of recreational land; it is for the boards or committees running these services to manage these facilities and set the policies. This report is an inventory of the lands and physical structures of the commun- ity facilities, and an evaluation of their future service to the town. School Facilities Standards and Guidelines The Massachusetts School Building Assistance Bureau of the Department of Education follows the National standards and guide- lines for classrooms and school sites. These are ultimate stand- ards and in cases where the conditions set by the Commission can- not be met, the School Board should try to get as close to these conditions as possible. On the average the Commission recommends no more than 25 pupils per classroom. Elementary school sites should be at least 10 acres with an additional acre for every 26 one hundred pupils. Middle school sites should be 20 acres, and secondary school sites should be 30 acres with an additional acre for every one hundred pupils. With an enrollment of 660 students in 1973, the elementary school needed between 16 to 17 acres. South Street School with 217 students, and Church Street School with 224 students should have about 24 1/2 acres for their com- bined student body. Finally, with its present enrollment the High School should have about 35 1/2 acres. Since it is diffi- cult to increase or decrease the size of the site from year to year, ideally the site should be large enough to accommodate the largest projected school capacity. This is especially true in towns like Ware, where there is open building land available at a relatively low cost. History of the Schools in Ware and the Marshall Plan In January 1969, Educational Consultant John E. Marshall prepared a report entitled School Needs In Ware . In accordance with the guidelines published by the Massachusetts Department of Education, the Marshall Plan recommended that Ware become a part of a regional school district from kindergarten to twelfth grade. At that time, the biggest problem with the Ware school system was "obsolete or inadequate school plant facilities." A two step plan was presented to provide Ware with a regional school system and adequate facilities. Step one was the build- ing of a new elementary school to replace the South Street School. This was scheduled for 1971. Status after Step 1 Grades K-5 in the new elementary school replacing South Street School Grades 6-8 in the Church Street School Grades 9-12 in the Ware High School The second step was planned for 1975. It involved constructing a new regional high school for grades 9-12. The present high school would replace the Church Street School as a middle school for grades 6-8. 27 Status after Step 2 Grades K-5 in the elementary school Grades 6-8 in Ware High School, now a middle school Grades 9-12 in the new regional high school Following the recommendations in the Marshall Plan, a new elementary school was completed in February, 1973 . At the pres- ent time, this new building is being used by grades K-4 . The South Street School is being used by grades 5 and 6. The interior of the Church Street School was renovated in 1972 and a new gym floor was put down in 1973. This improved building is used for grades 7 and 8. The High School, built in 1961, is being used by grades 9-12. Present Status Grades K-4 in the new elementary school (1973) Grades 5-6 in the South Street School (1901) Grades 7-8 in the Church Street School (1893 and 1925) Grades 9-12 in the Ware High School (1961) Enrollment Figures 1971 1972 1973 Grade Parochial Public Parochial Public Parochial Public K 42 96 38 113 36 112 Ung . 8 35 110 1 33 121 39 107 36 117 2 32 120 30 108 43 95 3 35 138 29 123 29 107 4 36 94 32 124 32 119 5 39 104 30 105 30 128 6 37 120 36 111 33 89 7 39 122 35 124 37 109 8 38 115 37 134 41 115 9 126 157 6 159 10 119 131 3 148 11 133 119 4 128 12 112 129 1 111 Total 331 1,528 306 1 , 620 331 1,647 Springfield Trade School 15 7 9 Total 1,874 1 ,946 1,987 28 An Inventory of Existing School Facilities Elementary School : The elementary school was built in 1973 behind the Ware High School on a portion of the high school land. It is a quite spacious building designed for open classroom teaching. Presently, the roof of the school is leaking, causing a great deal of damage inside the building. When these leaks are stopped, this building will adequately provide for Ware's Elementary School needs for many years. This school shares a great deal of open space with the high school. It also has its own parking lot and a large wooded playground. South Street School: The South Street School was built on 4 1/2 acres of land in 1901. The building has a brick exterior, and the classrooms inside are all about 900 square feet — an ample size for classes. The building interior was refurbished in 1951, and in the past few years, extensive structural and aesthetic improvements have been made. There is a classroom sized area for physical education in the basement, and a large gymnasium area covering most of the third floor. There are small playing fields both in front of and behind the building, and there is a basketball hoop in the rear parking lot for half court games. The school is close to Memorial Field which provides a large football field for after school recreation. There is also vacant land behind the school which provides additional space for recreation, although this land is not presently owned by the school department. In 1969, the Marshall Plan recommended that this building be abandoned as soon as possible. The building was, reportedly, structurally unsafe and also a potential fire-trap. It was considered an antiquated facility, unable to provide the flexi- bility needed for today's educational methods and special in- structional needs. "The single good feature of this school (was) the ample size of the classrooms" (from the Marshall Report.) 29 Since the time of this report, the School Board and the middle school staff have expended a great deal of time, energy, and money to improve the South Street School. The unsafe elements have been reinforced and the building codes for fire safety have been met. Many of the heat losses in the building are being corrected and most of the interior has been recently repainted. The halls and classrooms are bright and cheerful, and almost all the bathroom facilities are modern; all of them are sanitary. The classroom facilities still lack flexibility. Special instruction areas for music practicing, conferences and counsel- ling have been provided, and there is a large classroom for stu- dents with special needs. Perhaps in 1969 the Marshall Plan's recommendations to abandon the school were reasonable, but since that time the school has been greatly improved. If it is pos- sible, the School Board should try to acquire the land behind the school. But now, there is no reason to abandon this school for the next 20 years. Church Street School : The Church Street School was erected on 2 3/4 acres of land in 1893. In 1925, a second building was also built on the site. These two buildings are connected, and together have 19 class- rooms from 720 square feet to less than 300 square feet. Many of these are too small for classrooms, and are used for music rooms and conference areas. The older of the two buildings con- tains a small gymnasium (2,000 sq. ft.) which was recently re- floored. There is also a small playing field and playground with monkey bars and climbing poles, but there is no land available for expansion. The Marshall Plan recommends that this facility be used only until new facilities are built. But, like the South Street School, this school has received a great deal of attention since 1969. The roof has been patched, windows replaced to decrease heat losses, the boiler is being fixed, and the classrooms are all being repainted. In addition to all of this, a library has 30 been set up and a library aide has been hired to maintain it. A large classroom has been set up for classes for students with special needs. Due to its age, this building is not as flexible as many of the newer school buildings, but it does have one large open classroom, created by taking out a wall between two adjacent rooms. This building, with the South Street School, is now ade- quate for Ware's Middle School needs. If any additional land becomes available, it should be acquired. High School : Ware High School was built in 1961 on a large 44 acre site. There are ten general classrooms, eleven specialized classrooms, a double gymnasium, a library, and a 3 50 person capacity audi- torium. The Marshall Plan projected a "reasonable" capacity for this building as 500 pupils. Last year there were 560 pupils in this building; it was operating well over its "reasonable" capacity at about 9 8 percent total capacity (according to the School Board) . To alleviate the overcrowding the school depart- ment is presently considering adding six temporary classrooms to the existing facilities. The recreational facilities at the high school are quite good. In addition to the double gymnasium, there is a vast amount of open space. There is also a large playing field and several parking lots. The school will provide for Ware's high school needs for many years. Should the overcrowding continue, the high school will need permanent classrooms added on, not temporary ones . School Needs All of Ware's schools should be adequate for many years to come. The School Board should try to acquire the vacant land behind the South Street School, and if any land should become available around the Church Street School, it too should be acquired. Both of these buildings are sound, but neither is on a site large enough for sufficient recreational areas. 31 The high school should be reevaluated soon to determine whether or not additional permanent classrooms will be needed to alleviate the present problem of overcrowding. All of the schools should establish a continuous building improvement program. Except for the high school, all of the schools have recently had improvements made, and this momentum should be maintained. No building which is used as extensively as a school can remain in sound and safe condition without con- stant surveillance and maintenance. As the old saying goes, "A stitch in time saves nine." So too with buildings. If the South and Church Street Schools had been maintained each year, the mas- sive improvement program, recently undertaken, would not have been necessary. A continuous improvement program will also help eliminate costly major improvements. Recreation Facilities Standards and Guidelines As in many other areas, there are national standards for recreation facilities established by the National Recreation and Park Association. These standards are often used to compare the effectiveness of a community's facilities with national demands. They are useful in developing a unified and balanced system of park and recreation lands and facilities. As stated in the National Park Recreation and Open Space Standards , four principle uses of the standards are: 1. The development of a comprehensive plan of park and recreation areas and a systematic approach to land acquisition. 2. The determination of what and how many recreation fa- cilities are needed to best serve the people, and where they should be provided. 3. The justification to political bodies for the acquisition and development of park and recreation lands and fa- cilities and to determine priorities. 32 4. Use as a measure against which the effectiveness of the park and recreation system can be evaluated. The recreation standards advised by the National Re- creation and Park Association are shown in Charts I-IV. It should be understood that these standards are for the ultimate population of the area, and not for the present popula- tion. All of these lands should be publicly owned. Public school property, special areas such as cemetaries and plazas, vacant undeveloped land, and voluntary agency lands should not be in- cluded in the recreational land. (This condition is very often not met. Although these areas may presently provide open space and recreation areas, unless they are publicly owned, there is no guarantee that these lands will remain open spaces or recrea- tion areas. One of the main reasons behind establishing a recrea- tional system is to preserve this land in perpetuity.) The various recreation areas in the standard all have dif- ferent purposes, and are proposed for different groups of people. The playlot is a small area intended for children up to 6 or 7 years of age. It is essentially a substitute for the backyard and thus normally only provided in high density areas such as apartment or tenement districts. Children should not be required to cross busy streets to reach the playlot. Vest pocket or mini-parks are usually vacant lots, converted to recreation use. They may serve children, senior citizens, or all age groups, depending on the needs in the neighborhood. Neighborhood parks should provide facilities for active recreation such as ball parks and playing fields. These areas should be screened from surrounding areas to prevent excessive noise from the park. If possible these parks should adjoin ele- mentary schools. Recreation facilities for adults should also be provided in these parks. District parks should supplement the neighborhood parks in providing near at hand recreation facilities. These larger sites should adjoin junior and senior high schools if possible. They 33 should encompass the activities formerly included in the play- fields. These parks are best located on or near easily accessi- ble thoroughfares. Large urban or metropolitan parks are normally designed to provide the urban dweller with an opportunity to escape the noise and congestion of the city without traveling long distances. Regional parks serve the people of a large region. They are usually maintained by the county or some regional government. They may be left in their natural state or developed extensively, but they should not take the place of neighborhood or district parks . TABLE 4 RECREATION FACILITIES BY CLASSIFICATION AND POPULATION RATIO Acres/ Size Population Service Classification 1000 People Range Served Area Playlets Vest pocket parks Neighborhood parks District parks Large urban parks Regional parks * 2,500 sq. ft. to 1 acre * 2,500 sq. ft. to 1 acre 2.5 Min. 5 acres up to 20 acres 2.5 20-100 acres 5.0 100 + acres 20.0 250 + acres 500-2,500 500-2,500 2,000-10,000 10,000-50,000 One for ea. 50,000 Serves entire popu- lation in smaller communities; should be distributed throughout larger metro areas Sub-neighborhood Sub-neighborhood 1/4-1/2 mile 1/2-3 miles Within 1/2 hr. driving time Within 1 hr . driving time Special Areas & Facilities *Not applicable By Percentage of Area Includes parkways, beaches, plazas, historical sites, flood plains, downtown malls, and small parks, tree lawns, etc. No standard is applicable. The National Recreation and Park Association recommends that a minimum of 25% of new towns, planned unit develop- ments, and large subdivisions be devoted to park and recreation lands and open space- TABLE 5 STANDARDS FOR SPECIAL FACILITIES The following standards are recommended for individual recreation facilities Facility (outdoor) Standard/1000 people Baseball Diamonds Softball Diamonds (and/or youth diamonds) Tennis Courts Basketball Courts Swimming Pools — 25 yard Swimming Pools — 50 meter Skating Rinks (artificial) Neighborhood Centers Community Centers Outdoor Theaters (non-commercial) 1 per 6,000 1 per 3,000 Regulation 90' 1 per 1 per 1 per 1 per 1 per 1 per 1 per 1 per 2,000 500 10,000 20,000 30,000 10,000 25,000 20,000 (Best in battery of 4) Based on 15 sq. ft. of water for 3% of pop. Shooting Ranges 1 per 50,000 Complete complex incl. high power, small-bore, trap and skeet, field archery , etc . Golf Courses (18 hole) 1 per 25,000 Note: Most of the above mentioned facilities are desirable in small communities, even though their population may actually be less than the standard. Every effort should be made to light all facilities for night use, thus extending their utility. TABLE 6 SPACE STANDARDS FOR NEIGHBORHOOD PARKS Suggested space standards for various units within the park. The minimum size is five acres. Facility or Unit Area in Acres Park Adjoining School Separate Park Play apparatus area — preschool Play apparatus area — older children Paved multi-purpose courts Recreation center building Sports fields Senior citizens ' area Quiet areas & outdoor classroom Open or "free play" area Family picnic area Off-street parking Subtotal Landscaping (buffer & special areas) Undesignated space (10%) Total ♦Provided by elementary school **Based on 25 cars @ 400 sq. ft. per car. .25 .25 .50 .50 1.00 .50 1.00 * 4.00 2.50 .65 7.15 acres .25 .25 .50 .25 5.00 .50 1.00 .50 1.00 2.30** 11.55 3.00 1.45 16.00 acres TABLE 7 SPACE STANDARDS FOR DISTRICT PARKS Suggested space requirements for various units within the park. The minimum size is 20 acres. Facility or Unit Area in Acres Park Adjoining School Separate Park Play apparatus area — pre-school Play apparatus — older children Paved multi-purpose courts Tennis complex Recreation center building Sports fields Senior citizens ' complex Open or "free play" area Archery range Swimming pool Outdoor theater Ice rink (artificial) Family picnic area Outdoor classroom area Golf practice hole Off-street parking Subtotal Landscaping (buffer & special areas) Undesignated space (10%) Total ♦Provided by Jr. or Sr. High School **Based on 330 cars @ 400 sq. ft. per car .35 .35 1.25 1.00 * 1.00 1.90 2.00 .75 1.00 .50 1.00 2.00 1.00 1.50 15.60 3 .00 1.86 .35 .35 1.75 1.00 1.00 10.00 1.90 2.00 .75 1.00 .50 1.00 2.00 1.00 .75 3.00** 28.35 6.00 3.43 20.46 acres 37.78 acres TABLE 8 Recreation Facilities in Ware Land Open Land Base— ball Basket— ball Foot- ball Skatino Tpnni"? Pool Gym Picnic PI i J. CI jf Ground Greenville Park yes yes yes yes no yes no no yes yes Pumping Station yes no no no yes no yes no no no Memorial Field yes yes no yes no no no no no no Elementary School yes no yes no no no no yes no yes South St. School no no yes yes no no no yes no yes Church St. School no no yes no no no no yes no yes High School yes no yes yes no no no yes no no Quabbin Reservoir yes no no no no no no no yes no 34 Inventory of Existing Facilities Ware is not a high density urban area, and it is very un- likely that Ware will become one in the near future. There is no need for playlets or large urban parks. At present Ware has no vest pocket parks or small recreational areas except at the schools. These areas are only as permanent as the schools, and should not be included in the town's future recreation plan. There is a small playground at the elementary school surrounded by woods, a 1/2 acre lot at the Church Street School, and a small playing field at the South Street School. The high school has a larger playing field and a great deal of open space and woods. Besides the school facilities there are three town recrea- tion areas. Memorial Field, the Reed Swimming Pool, and Greenville Park. Memorial Field is in between a neighborhood and district park. It has a large playing field near the South Street School, and is screened off from the surrounding areas. The Reed Swim- ming Pool is maintained by a trust fund, and is the only public pool in town. It is very old and too small to adequately fulfill the demand for swimming areas of the town. Although it can be used for several more years, another pool should be built soon. Greenville Park is a large 124 acre park, maintained by a trust fund, and controlled by the Park Commission. Much of the park is wooded land, but there are also several fishing areas along the Ware River which runs through the park . There is a bandstand for summer concerts, and facilities for various sports activities. Along with these facilities there are over 4 0 picnic tables and numerous fireplaces with firewood. This park is a great asset to the town, and will remain so for many years. It is in many ways an urban type park which Ware is very fortunate to have. With the land in trust, it will remain an asset. Recreation Needs Ware has a pressing need for publicly owned small recreation areas. There are no tot parks or areas for senior citizens. Vacant lots in the residential areas should be purchased and con- verted to vest pocket parks. Due to the low density in Ware, the 35 standards should be used as lower limits — 2,500 sq. ft. for 500 person sub-neighborhoods. There is also a need for a neighborhood park and a new swimming pool. Beaver Lake will soon be in need of some organized recreational areas and might be a good site for these new facilities. Library The Young Men's Library Association in Ware was established in 1873/ and the present library building was erected in 1881. The Association is an independent, private corporation. The li- brary is open to the public and is supported by both municipal funding and an endowment. Along with space for stacks, there is a children's room and a reading room which are both frequently used. In October, 1973, a balcony was added in the center sec- tion of the library to give more stack room and uncrowd the bottom floor. The library belongs to the Western Regional State Library System in Springfield. Through this system the Ware Library can borrow films and research materials from the larger libraries in the area. The staff consists of three full time librarians, and one part time worker. Along with caring for the books and circulating them, the librarians provide a preschool story hour every week for up to 80 youngsters, and a reading club for 10 weeks in the summer. They also provide the Housing for the Aged with large type books, and organize special exhibits for display in the library. The size of the library, with the new addition is large enough for the present town. Although there is no room for fur- ther expansion on the present site, circulation can be increased within the existing facilities. The library is in the center of town. The municipal parking lot is only two blocks from the library, but right now there is no off-street parking for the library. Due to its location on the main street, both the library users and the staff have parking problems and would benefit from a parking area near the library. At present there is no possibility for a library parking lot. The main plans for the future involve installing cable television in one of the library rooms for public use. The cable has been installed and the library is looking for a T.V. 36 Fire Department The fire station is in the center of Ware's business area. It is the only station in Ware, and it services all of Ware and some of the MDC forest land bordering Ware. It also services all of the mills. Although most of the mills are within a mile of the fire station, for additional safety all of the mills are protected by sprinkler systems. All together the fire department is in charge of over 4 0 square miles of land. To manage this the fire staff consists of 9 permanent men, including: 1 chief 1 captain 2 deputies 6 station men 30 volunteers on call The equipment available at the station is : 1 Forest Fire and Pumping truck which answers all calls (1966) 2 Pumpers (1950, 1963) 1 Ladder truck (1946 model) 1 Reserve pumper (1936 750 gallon model) 1 Ambulance (1970) 1 Chief Car (which can serve as an ambulance back-up) (1971) For years now the chief has been recommending that the town connect all developed areas with town water, using twelve inch mains instead of the frequently used six inch mains. An old six inch main will often clog with rust, thus reducing the effective size of the pipe and allowing less water. Many of the older pipes in town have in fact been clogged in this way and need to be replaced. Additional streets and buildings have increased the need for water and many mains are insufficient to serve to area in case of fire. Each pumper has a range of about 1000 to 1100 feet. Using two of these in a series, the range can be increased to 2000 feet. Further extensions involve too much time, too many men, and too many trucks. Easily accessible approaches to the water are needed to optimize this range. Although the fire chief is consulted on highway construction, many access roads to the river are poorly built. They are often unmaintained dirt paths, and trucks have been stuck in them in the past. 37 At present the Department is trying to put 6 dry hydrants in around Beaver Lake to increase the pumper range in the area.* The short range plans of the fire department are to re- place the 1936 pumper, the ladder truck, the ambulance and the chief car. Its long range plans involve building a new auxiliary fire station on Beaver Lake. There would be one pumper at this station which would be manned by volunteers in the area. They would answer calls in the area. The main station would also answer the calls, but the auxiliary station would provide quick- er and more immediate service to the growing area." Since in- surance rates increase for buildings outside a three mile radius of the station, such a new station would also decrease the fire insurance for the entire Beaver Lake area. With its addition almost every house in Ware will be within a three mile radius of a fire station. Water Facilities Standards and Guidelines: The New England Fire Insurance Rating Association rates town water systems according to main size and fire fighting ability. In residential areas, the standards recommend that 6 inch mains should be used only when they complete a good grid in blocks less than 600 feet in length. Otherwise, a minimum of 8 inch mains should be used. In manufacturing and mercantile districts, 8 inch mains should be used only when they complete a good grid. Minimum 12 inch mains should be used for long lines which are not cross-connected. Water Supply: Ware's water supply is provided by the Municipal Water Department. As of 1970, over 7,000 people were being served. The source of the supply is ground water which is pumped from a well and well field off Barnes Street. The yield of the source *A dry hydrant is one in which this is no water and no pressure, but it provides a duct to the lake through which the fire pumper can pull water. 38 is limited to the capacity of the pumps, which are presently working between 18 and 19 hours a day. Along with this well, there is a small auxiliary gravel-packed well, and four distri- bution storage facilities with a combined capacity of over 2 million gallons, as follows: Type Capacity Location Elevation Standpipe 250,000 Church St. 700MSL Standpipe 500,000 Anderson Rd. u i rias a j.eaKage Reservoir 2,500,000 Church St. 618MSL problem Tank 200,000 south part of town For industrial use only The New England Fire Insurance Rating Association rates Ware as Class 5 (where Class 1 is very good and Class 10 is bad) . There are over 4 0 miles of mains in the town with 1900 meters. Many of the transmission and distribution lines are inadequate. Many of the mains are 6 inches and some are even 4 inches in diameter. Very few are arranged in a tight grid system. As was stated in the section on the fire department, in many of the older mains, a layer of rust and mineral deposits has built up inside the pipes, decreasing the effective diameter. Water Needs The present pump off Barnes Street is operating at peak efficiency. According to the State Department of Public Health, the estimated yield of the present supply is only 1.1 million gallons a day, and the maximum demand, 1.4 million gallons a day, has already exceeded this yield. There is an immediate need for a new water supply. According to the Groundwater Favorability map (prepared by Curran Associates, Inc. in Northampton, Mass.) there are many potential well sites which can be developed. Ware needs a new well and well field as soon as possible. To go with these facilities, the town also needs another storage tank and a transmission line connecting the well to the tank. Along with these facilities. Ware should begin a program to both replace the older mains which are too small, and to extend the water system to service the growing residential activity around Beaver Lake and along West Street. 39 Sewer Facilities At present Ware has a primary treatment plant with a capac- ity of .8 million gallons a day. This plant treats only domestic waste and serves over 5,200 residents with over 60 miles of sewers. The effluent is deposited in the Ware River which has been given a Class C rating. (The Class C rating means that the water is suitable for recreation and wildlife habitat, and adequate for common food and game fish indigenous to the area.) The town also has storm drainage facilities to handle the rain run-off and infiltration. The average sewage flows for the town are .44 million gal- lons a day of sanitary sewage and .92 million gallons a day of infiltration. These are both well below the ultimate capacity of the systems and there will be no need to expand the capacity of either treatment system in the foreseeable future. Also, the Ware River has the capacity to receive secondary treatment for the next fifty years. There are plans at present to build a secondary treatment plant for both domestic and industrial wastes. This plant should be completed as soon as possible for the protection of the Ware River. In addition to this some of the existing mains are ex- tremely old and need to be replaced. As shown by the map of Soil Favorability for On-Lot Sewage Disposal (prepared by Curran Associates, Inc. of Northampton, Mass.), most of the land in Ware has moderate to severe septic limitations. Because of this, future development should be encouraged to go on sewered lots. Thus, along with replacing the old mains, the town must increase the areas served by sewer facilities. Hospital The Mary Lane Hospital is a private non-profit open staff hospital serving Ware, Belchertown, Hardwick, Warren, Brookfield, West Brookfield, North Brookfield, and West Warren. The Old Wing of the hospital was built in 1922. It now contains the administrative services and the maternity section. 40 The Storrs Wing was built in 1948 and contains pediatrics, 19 medical-surgical beds, the pharmacy, and the kitchen. The newer Doctor's Offices with 18 medical-surgical beds was built in 1961. The most recent addition was finished in 1972. It has the cafeteria, 3 5 medical-surgical beds, the surgery-recovery area, the lab, x-ray, therapy rooms and emergency facilities. The outpatient services (lab, x-ray, and therapy) handle approximately 1500 patients a month. The emergency service has another 1100 patients a month on the average. In addition to this, there are about 58 inpatients a day. The outpatient ser- vice capacity is 3000 per month. This service is presently oper- ating at 50 percent capacity and will be more than adequate for many years. The emergency service facilities can handle 1500 patients a month. The present capacity is 77 percent of the total capacity (or 1100) . There will be no need to expand this facility for at least 10 years. There is presently the capacity for 78 inpatients a day, and when the average capacity exceeds 7 5 per- cent of the total (58 inpatients a day) , the Board of Health will permit the hospital to expand to 90 beds. There is room for this expansion when the hospital decides to increase the capacity. The hospital presently offers annual clinics on hyperten- sion, and diabetes. Every other year the hospital offers a can- cer detection clinic. For a fee, there is available a visiting nurse service for convalescing patients who wish to return home before they are fully recovered. The hospital has several affiliations with the Holyoke College of Pharmacy, and the Holyoke Community College — training dietary personnel. There is frequent in-service training for the nurses which is offered in Springfield. Presently the hospital needs additional parking areas. In the future, there are plans for a separate six bed Cardiac Intensive Care unit, and 30-35 additional medical-surgical beds. There are also plans to expand the services for Inhalation Therapy and Physical Therapy. The hospital is on a large area of land, and there is open space available for expanding the parking areas and medical facilities. r L I ' *.!ilia/ f pal ^ ' -lit land use General Description 41 Suitability of the Land for Development 43 Conclusion 48 J t I I I I I Map 1 TABLE 9 LAND USE CHANGES 1951-1971 LAND USE CATEGORY NO. OF ACRES IN 1951 NO. OF ACRES IN 1971 DIFFERENCE (in nos. of acres) PERCENT CHANGE AGRICULTURAL LAND: TILLED 771 979 + 208 26% AGRICULTURAL LAND: UNUSED TILLED 52 + 52 PASTURE: NOT SUITABLE FOR TILLAGE 2182 1280 902 41% ABANDONED FIELD 2082 780 -1300 62% PRODUCTIVE FRUIT ORCHARD 28 7 21 75% ■ POWERLINES OR RIGHTS OF WAY 0 158 158 WETLANDS: OPEN WATER 3700 3657 43 1 SHRUB SWAMPS 152 114 38 25% 1 SHALLOW MARSH 212 63 149 70% |P DEEP MARSH 60 88 + 28 47% ^ HEAVY INDUSTRIAL 41 37 4 1% [ LIGHT INDUSTRIAL 31 22 9 29% H COMMERCIAL 21 37 + 16 76% 1 HIGHWAY COMMERCIAL 25 18 7 28% H SHOPPING CENTERS 0 7 + 7 GARDEN APARTMENTS 0 4 + 4 TENEMENTS OR APARTMENTS 3 0 3 HIGH DENSITY URBAN RESIDENTIAL LAND 170 280 + 110 64% 1 MEDIUM DENSITY RESIDENTIAL 228 408 + 180 79% W LIGHT DENSITY RESIDENTIAL 12 173 + 161 1340% L OPEN LIGHT DENSITY RESIDENTIAL 35 48 + 13 37% f LIGHT DENSITY FORESTED 0 48 + 48 (3-10 Dwell- CLUSTERED RESIDENTIAL LAND . „ , mg Units) 0 129 + 129 1 « ESTATES - 3 or more acres 0 15 + 15 AIRPORTS 0 18 + 18 RAILYARDS 7 7 TERMINALS FOR TRUCKS 0 11 + 11 OPEN, UNDEVELOPED LAND IN URBAN AREA 58 30 28 48% 1 LAND USE CATEGORY NO. OF ACRES IN 1951 NO. OF ACRES IN 1971 DIFFERENCE (in nos. of acres) PERCENT CHANGE PUBLIC OR QUASI-PUBLIC LAND 33 140 + 107 320% CEMETERIES 10 88 + 78 780% STADIUMS OR ATHLETIC FIELDS 0 15 + 15 SAND AND GRAVEL 0 40 + 40 AUTOMOBILE DUMPS 0 15 + 15 SEWAGE TREATMENT 0 4 + 4 SOURCE: MACCONNELL STATISTICAL SUMMARIES TOTALS OF THE SIX MAJOR LAND USE CATEGORIES FOREST LAND 15,750 16,892 +1142 7.2% AGRICULTURAL OR OPEN LAND 5,064 3,256 -1808 36% WET LAND 4,172 3922 - 250 6% MINING AND WASTE DISPOSAL LAND 0 59 + 59 URBAN LAND 674 1,516 + 842 120% OUTDOOR RECREATION LAND 0 15 + 15 TOTAL NUMBER OF ACRES 25,660 25,660 In 1951 URBAN LAND In 1971 43 of 180 acres of medium density land, a 79 percent increase; 160 acres of light density land, a 1,340 percent increase; 129 acres of clus- tered residential land and 110 acres of high density urban residential land or a 64 percent increase. In total, there was an increase of 642 acres of residential land in the twenty year period or an in- crease of 170 percent. The change in the amount of commercial land has not been as dramatic as the changes in agricultural or residential land. There were 41 acres of heavy industrial land in 1951 and 37 acres in 1971, a decrease of 4 acres or 1 percent. Light industrial land went from 31 acres to 22 acres, a decrease of 9 acres or 29 percent. Commer- cial land along highways occupied 25 acres in 1951 and 18 acres in 1971, a decrease of 7 acres or 28 percent. The number of acres of commercial land was 21 in 1951 and 37 in 1971, an increase of 16 acres, 76 percent. On the whole, there was a slight decrease in the amount of land devoted to highway commercial and industrial uses and an increase in the amount of commercial land. There is still a great deal of undeveloped land in Ware. 66 percent of the land is forested; 12 percent of the land is agri- cultural or open land; 15 percent is wetland which includes open water, shrub swamps, shallow marshes and deep marshes. Urban land, which includes industrial, commercial and residential land, comprises only 6 percent of the total amount of land in Ware but it was only 3 per- cent in 1951. Of the urban land types, the increase in residential land has been the most significant. Suitability of the Land for Development Although there is a great deal of undeveloped land in Ware, one must not assume that all of this land is suitable for develop- ment. There are certain physical characteristics of the land which determine its suitability for development, such as slopes, availabi- lity of water and soil conditions. There are no minimum standards for what constitutes an acceptable housing site because limitations can be overcome. But, if an area has many limitations it may be very expensive for the town to provide services to the area and the pro- cess of development might cause irreparable damage to the environment. 44 Therefore, it is necessary to define the most important building limitations and then identify on a map where those conditions exist. A survey of the land in Ware has been made to determine its suitability for development. The limitations which were considered were: slopes over 15 percent, the presence of wetlands, floodplains and water, the amount of groundwater and the favorability of the soils for septic tanks. Each of these characteristics has been mapped separately. The maps can be overlaid to illustrate those areas which have the least amount of limitations for development and those areas which have the most severe limitations. Slope The slope of an area is determined by measuring the degree to which the land rises in 100 feet of horizontal distance. The result is then expressed as a percent. For example, if a street rises 10 feet in the distance of 100 feet, it is said to have a slope of 10 percent. Slope requirements vary with each land use activity, but home site builders generally agree that slopes over 15 percent are less desirable as housing sites because more complicated forms and founda- tions are required. Subdivision regulations usually require that roads have slopes of 10 percent or less. A steep slope may also in- crease erosion and maintenance problems on the land. Severe slopes make accessibility difficult and increase the difficulty of install- ing municipal services to these areas. Therefore, all the areas in Ware which have slopes over 15 percent have been mapped. The areas which have slopes greater than 15 percent generally appear in vertical bands on the map except for one area in the south- eastern corner of the town (see map) . The one exception is a large section occupying almost all of the entire lower eastern edge of town south of the Ware River. This area is presently undeveloped. There are several other bands which have slopes over 15 per- cent in the northeastern portion of town; most of these are also un- developed. In the western part of town there is a long band including the Beaver Lake and the areas directly north and south of it which have Map 3 slopes greater than 15 percent. Residential development has been occurring in this area. Wetlands, Floodplains and Open Water Wetlands, floodplains and open water are another set of limi- tations on the development suitability of the land. Wetlands can be built upon by filling in the land but this causes damage to the en- vironment. There are several laws in Massachusetts, the Coastal Wetlands Act of 1965 and the Inland Wetlands Act of 1972, which re- quire that anyone who intends to build on a wetland must fill out an environmental impact statement showing that the proposed action will have no harmful effect on the surrounding area. Floodplains are also undesirable to build on because they are subject to periodic flooding. The function of this land is to ab- sorb the overflow of rivers and streams in the flood season. It has been shown that building on floodplains decreases their ability to absorb water and therefore their usefulness as a means of con- trolling the extent and damages of the flood. Under the new Federal Flood Insurance Program, only those buildings which conform to the safety guidelines set up by the Federal government will be eligible for Federal Flood Insurance. There are quite a few streams, brooks and ponds in Ware (see map) . The Ware River runs along the eastern and southern boundaries of the town. The floodplain is generally defined as that area which is within 100 feet of the river; in some areas, the floodplain ex- tends further than 100 feet. Development has already occurred on the floodplain of the Ware River near the center of the town. Further to the southwest, several residential developments have recently been built close to the river along Rte. 32. Care should be taken to assure that the floodplain itself is not built upon. The Swift River forms the western boundary of town and the surrounding area is rela- tively free of development. Wetlands differ from floodplains in that they are areas which are constantly wet rather than subject to periodic flooding. They are not always located directly next to a water body, but are usually within the general vicinity. Wetlands are areas where the ground- Map 4 Aquifer yield greater than 40 gpm Aquifer yield 10 - 40 gpm Aquifer yield less than lOgpm GROUNDWATER FAVOR ABILITY CURRAN ASSOCIATES, INC. water table is at the same level as the surface of the ground and is therefore exposed. There are some wetlands in the southern section of town along Rte. 32. There are also wetlands in the central portion of the town near Flat Brook, Muddy Brook and Snows Pond. South of Beaver Lake, at the junction of Penny Brook and the Ware River there is a large area of wetland. Light intensity uses such as farming, recreation or low density residential are the most favorable for wetlands and high intensity uses should be discouraged in these areas. Groundwater Favor ability In areas not serviced by the town water system, developers must consider the amount of water available to fill their wells in the area in which they wish to build. Water is supplied to an area by an aquifer, an underground water source, so availability of water is measured in terms of aquifer yield, the amount of water provided by the aquifer. The location of the aquifer is also an important consideration to the developer. Aquifers, which provide us with drinking and bathing water, must be kept free from pollution by septic tanks and industrial waste. Therefore, developers must know where the aquifer is so that septic tanks can be located a safe distance away. The map identifies areas where there is a great deal of water available, where there is a moderate amount of water available and where there is an insufficient amount of water available. Aquifer yield is measured in gallons per minute (gpm) . 10 gpm is considered sufficient for domestic use. Fire-fighting equipment requires an aquifer yield of at least 40 gpm. The aquifer yield in much of Ware is less than 10 gpm which means that residences in these areas would not be provided with an adequate water supply. The northeastern quarter of Ware has a low aquifer yield except for the area around Flat Brook and Muddy Brook which have an adequate aquifer yield. The ground water supply is also insufficient in the western part of town around Beaver Lake and in the southeastern corner of town. The municipal water system now serves the central business dis- Map 5 SOILS FAVORABILITV FOR ON-LOT SEWAGE DISPOSAL CURRAN ASSOCIATfS, INC 47 trict and the area iimnediately surrounding it. Development in areas not supplied with town water should be concentrated in areas which have a sufficient aquifer yield. But development should also be patterned in such a way as to protect aquifers from the possibility of pollution from septic tanks. This problem is often solved by clustering development in a small area and leaving the land direct- ly above the aquifer undeveloped. In the event that the municipal water system will not be extended any further, Ware people should make an effort to protect their underground water supply. At the same time, they should realize that the amount of growth in the town is partially dependent upon and limited by the available water supply. Septic Limitations Every house must be provided with an adequate sewage disposal system and in the absence of a public system operated by the town, septic tanks must be installed. The conditions which are most favor- able for the installation of septic tanks are a permeable soil and a low groundwater table. The map for septic tanks indicates those areas which have severe limitations for septic tank installation, moderate limitations and only slight limitations. In areas which are serviced by the municipal sewage system the limitations for septic tanks are not a problem. Presently the town sewage system serves the center of town and the surrounding area to the north and west of the business district. Severe limitations exist in the southeastern corner of town and extending eastward along the southern boundary (see map) . Moderate limitations for septic tanks exist in most of the remaining areas of town. Only slight limitations exist near the central business dis- trict and in the areas just outside those served by the existing sewage system. Development should be encouraged in these areas with only slight limitations for septic tanks. Developable Land in Ware The maps of all the physical characteristics which impose limitations on development can be laid on top of each other to indicate 48 those areas which have the greatest number of limitations. A final map was made of developable land in Ware, those areas which have no limitations or only one limitation. These are the areas in which the town should encourage and concentrate development. Developable land is mostly in the southern central portion of the town where the most development activity is already occurring. There are also a few areas which have few physical limitations along the eastern boundary of Ware and in the western part of town along the western boundary and around Beaver Lake. Development in areas which have several physical limitations will be a great expense to the town and may be destructive to the environment. Building should be discouraged in these areas. Conclusions The physical characteristics of the land in Ware render much of it incapable of supporting high intensity development. The entire northeastern quarter of the town suffers from an inadequate water supply, poor soils for septic tanks and steep slopes. Simi- lar conditions exist in the central and western sections of town. This does not mean that Ware cannot accomodate any further growth. The land surrounding the central business district and to the north and south of Route 3 2 is relatively free of physical limitations and the most intensive development should be and is occurring in these areas. The land around Beaver Lake is being used for seasonal and permanent residences and, although there are some steep slopes in this area, the land is capable of accomo- dating this growth. Ware can make the physical limitations on the land work to the town's advantage. The rolling hills, fields and forests in Ware are very attractive and offer many opportunities for recre- ational use of the land. Recreation is a low intensity use and is the least harmful to land with many limitations aside from agri- culture and its accessory uses. Possible activities which could be encouraged are camping, hiking, horseback riding, cross country skiing and canoeing along the many streams ^ rivers and brooks in Ware. There may even be several slopes which could be used as ski hills. 49 Recreational, open land is becoming more scarce as the metro- politan centers continue to grow and urban residents are travelling as far as Canada to enjoy the rural areas that were once in their back yards. Because of this great demand and the recreational potentials which exist in Ware, the town should consider utili- zing the physical limitations of the land as assets. i economic base The Structure of the Economic Base 51 Unemployment 56 Labor Force Mobility: In and Out Commuting 5 8 Problems of the Economic Base 59 Industrial Development 62 Conclusions and Recommendations.... 67 ECONOMIC BASE REPORT The purpose of this report is to examine the economic base of Ware. The economy of any community can be looked upon simply as how a community earns its living. The convention, "Economic Base," generally refers to the structure of a local economy — the nature and type of economic activities which support the community. These economic activities are interrelated. Residents employed locally earn an income, and use much of this income to buy goods and services locally, thus fulfilling demands created within the community. Economic activities are often classified into basic and nonbasic components. Basic activities refer to that portion of the economy producing goods, services and capital which export all or most of their output. These activities bring about growth because they bring income into the community and create employ- ment in nonbasic activities, often referred to as "community serving" or "service" activities. The interrelationships between these two components of the economic base sustain the economic life of a community. Economists generally use employment data to analyze the economic base of communities because of their wide availability. The employment data in this report and much of the other statisti- cal information, unless otherwise stated, has been obtained from the Massachusetts Division of Employment Security, hereafter referred to as D.E.S. The D.E.S. employment data are obtained only from establishments subject to the Massachusetts Employment Security Law. However, coverage to state hospitals and institutions of higher learning was not extended until January, 1972 and there are still many employment types which are not covered. The data used are the best available, but they are not totally complete. 51 The Structure of the Economic Base Figure 2 and Table 10 show the structure of the Economic Base of Ware. Location Quotients can be used to compare employ- ment in each sector of the local economy with employment in each sector of a larger or regional economy, where values greater than 1.00 indicate the degree of concentration of various types of economic activities within a local economy. As a result location quotients also provide an indication of those activities which are basic activities for the community. Manufacturing The importance of manufacturing to the economy of Ware is clearly shown in Table 10 and Figure 2. It is the basic economic activity. The proportional employment in the manufacturing sector in Ware is over one and one half times the proportional manufac- turing employment in the Springfield S.M.S.A. and the state of Massachusetts . Table 11 and Figure 3 detail the structure of the manufac- turing base of Ware. Textile, shoe, and paper industries are clearly predominate. Two thirds of the manufacturing employment and eight of twenty manufacturing plants reporting to the State Department of Employment Security fall within these three industry categories . CM 0) u ■H CO 8 Eh Q 2 >H (U dP \ 00 0) • .H EH U] 0) •H rO 0 +J 0) u g to Table 10 1973 Average Annual Employment by Place of Employment (Employed Labor Force) S . I .C . Category Ware Spring- Location Mass. Location Town field Quotient* (Per- Quotient* (percent) SMSA cent) Mining Construction Manufacturing Transportation, Communication , Utilities Wholesale & Retail Trade Finance , In- surance, & Real Estate Services 0 . 2 5 . 0 59 . 0 2 . 0 4 . 0 0 . 4 4 . 6 38.0 5 . 3 19.0 26.0 6 . 0 12.0 19.0 0 . 5 1 . 09 1 .55 0 .37 0.73 0 .66 0.63 0 . 5 5 . 5 32.0 6 . 0 26 . 8 7 . 0 23 . 7 0.4 0 .91 1 .84 0.33 0.71 0 . 57 0 .51 *Location Quotient = Percent Local Employment 7 Percent Regional Employment Source: Massachusetts Division of Employment Security Table 11 1973 Manufacturing Employment by Place of Employment (Employed Labor Force) S . I .c . Ware Mas s . Location Category (percent) (percent) Quotient* Manufacturing 59 . 0 32.0 1 . 84 (100) "* (100) Textile 45 . 0 5 . 1 8.82 Apparel 6 . 0 7.4 0 .81 Shoe 15.0 4 . 3 3 .49 Paper 22 . 0 5 . 3 4.15 Machinery 5.0 11 . 5 0.43 Percent Durable Goods 5 . 0 34 . 0 Percent Nondurable Goods 95.0 66.0 -♦Includes only those establishments with greater than 25 employees ♦Location Quotient=% Local Employment -j % Regional Employment Source: Division of Employment Security 52 Historically, the economy of Ware has been greatly dependent upon the textile industry. Since the creation of Ware Industries, the occupants of the mill complex have continued to remain almost entirely members of the textile sector of manufacturing. This imbalance in the community economy is a major problem facing Ware. It is likewise an issue that the citizens of Ware must effectively come to grips with, if it is to be remedied. As Ware learned in 1937, when the Otis Company moved south, it is dangerous to put all your eggs in one basket. The second most important category of manufacturing is fin- ished and coated paper products. Machinery, printing and publish- ing, furniture products, fabricated and primary metals (foundries) complete the manufacturing base and individually comprise a rela- tively small portion of the manufacturing employment. Durable goods industries have generally achieved a much higher rate of growth in productivity and employment than the nondurable goods industries, and the ratio of nondurable goods employment to dur- able goods employment is much higher in Ware than in Springfield and the state as a whole. Construction is second in importance to manufacturing in terms of relative specialization, and a small segment of it 53 functions as a basic activity. Finance, insurance and real estate are also of importance to the town. Within the financial sector, three banks with home offices in Ware possess financial resources that are in large part derived from outside Ware; and this rep- resents a significant basic activity component of the economy. All other sectors of the economic base can be considered primarily nonbasic activities, performing mostly community serving or ser- vice functions. Nonbasic Activities: Wholesale and Retail Trade Wholesale and retail trade are second in importance to manu- facturing in terms of relative employment. About sixty-eight commercial enterprises employing about 500 people can presently be found in Ware. Most of these are concentrated along Main Street, within the Central Business District (CBD) , although the newest retail district, Phillip's Plaza, is highway oriented. Ware and Palmer serve as "core" communities within the region, supporting important wholesale and retail functions. Ware has con- tinued to maintain a position as an important trade center for the region with a 1972 per capita retail sales of $1,856, higher than that for Palmer and the state. The retail centers in Ware attract shoppers from both Ware and the northeastern communities of Petersham, Hardwick, Barre, New Braintree, the Brookfields, and Warren. Until recently the economy of the Central Business District along Main Street had remained relatively stable, despite both the lack of renovation and amenities, and the competition from more attractive shopping centers within the Springfield area. But during the past few years. Main Street business vacancies have increased and the stability of the business district has been badly altered by the closing of Grants, an important anchor store. Changes in the Structure of the Economic Base Tables 12 to 16 present a statistical story of the changes in the structure of the economic base of Ware from 1960 to 1973. Undoubtedly, the most significant changes occurred in the manu- facturing sector of the economy. Manufacturing employment de- clined both absolutely and relatively during the period examined. Table 12 Number of Firms and Payroll, 1960-1973, Ware, Massachusetts 1960 1965 1970 1973 S . I . c . Category No . Firms P ay ro 1 1 ($000) No . Firms P ay r o 1 1 ( $000) No . Firms P ay r o 1 1 ($000) N o . Firms P av roll ($000) Mining 1 25 1 26 1 31 1 2 2 Cons true tion 14 518 4 6 5 1,201 1,661 Manufacturing 20 9,495 18 10 , 296 20 10 ,271 20 11,306 * -Textile 7 4 ,529 6 4,330 6 4,475 6 4,717 -Apparel 1 210 1 75 2 315 2 507 -Shoe 2 2 , 844 2 3,496 1 2,305 1 1,227 -Paper 1 984 1 1,351 1 1 ,874 1 3,321 -Machinery 3 471 3 548 3 567 4 671 Transporta- tion, Com- munication , Utilities 9 185 9 246 10 340 10 337 Wholesale & Retail Trade 79 1,002 84 1,405 67 1,949 68 2,788 Finance , Insurance & Real Estate 11 336 12 432 11 654 12 806 Service 41 307 42 355 24 513 33 1,755 TOTALS 175 11,868 183 13,230 152 14,259 164 18,675 ♦Subdivision of "Manufacturing" category including only establishments with more than 25 employees. Source: Massachusetts Division of Employment Security Table 13 Number of Firms and Employment by Place of Employment, 1960-1973, Ware, Massachusetts 1960 1965 1970 1973 S . I . c . Category No . Firms No . * Empl . No . Firms No . * Empl . No . Firms No . * Empl . No . Firms No . * Empl . Mining 1 7 1 6 1 6 1 4 Cons true tion 14 73 16 49 19 97 20 132 Manufacturing 20 2,378 18 1 ,990 20 1 ,652 20 1,550 -Textile® 7 1 , 046 6 800 6 686 6 698 -Appar e 1 1 80 1 75 2 72 2 90 -Shoe 2 816 2 753 1 461 1 228 -Paper 1 213 1 233 1 260 1 337 -Machinery 3 91 3 84 3 69 4 83 Transporta- tion, Com- munication , Utilities 9 43 9 49 10 64 10 49 Wholesale & Retail Trade 79 336 84 407 67 422 68 507 Finance , I n- sur ance , & Real Estate 11 78 12 86 11 93 12 92 Service 41 115 42 110 24 89 33 312 TOTALS 17 5 3,030 183 2,696 152 2,424 164 2,646 ♦Employees (employed labor force) : average annual employment ^Subdivision of "Manufacturing" category including only those establishments with more than 25 employees Source: Massachusetts Division of Employment Security Table 14 Percent Total Employment, Ware , Employed Labor Force, Massachusetts 1960-1973 , 1960 196 5 19 70 1973 S , I .C— ^ C* ^ ^ O IT \T TT C V? X. W C ii u> Total J-l 111 ^ \J y 111 C i 1 \mr Total HI ^ W Jf ill C 11 I. P ^ Y" r* ^ n i" Total J-> 111^ ^ \J 111 C 11 w Percent 1 O U a. X Employment Mining 0 . 2 0 . 2 0 . 2 U . 2 Construction 2.0 2 . 0 4 . 0 c; n D . u Manuf ac tur ing 79 . 0 74 . 0 68 . 0 b y . U -Textile* 44 . 0 40.0 42.0 45.0 J . u ^ • \j ** • u 6 . 0 -Shoe 34 . 0 38.0 30.0 15.0 V O a A V* It c X X ^ . W 1 Pi n X O . Lf 22.0 -Machinery 4 . 0 4 . 0 4 . 0 5 . 0 -Other 6 . 0 4 . 0 4.0 7 . 0 Transportation, Communication , Utilities 1.0 2 . 0 3 . 0 2 . 0 Wholesale S Retail Trade 11 . 0 15.0 17 . 0 19 . 0 Finance , Insurance , Real Estate 3 . 0 3 . 0 4 . 0 4 . 0 Service 4 . 0 4 . 0 4 . 0 12.0 ♦Subdivision of "Manufacturing " calculated as percent total manu- facturing employment Source: Division of Employment Security Table 15 Absolute Change in Population Ware Town & and Employed Springfield Labor Force, I960- SMSA -1973 Ware Ware Ware Springfield SMS^ 1960-1965 1965-1970 1970-1973 1970-1973 S.I.C. Category Absolute Change Absolute Change Absolute Change Absolute Change Population +369 +301 Mining -1 0 -2 -35 Construction +3 +48 + 35 + 28 Manufacturing -388 -388 -102 +466 -Textiles* -246 -114 +12 -Apparel -45 + 37 +18 -Shoe -63 -292 -233 -Paper +65 + 27 +77 -Machinery -7 -15 +14 Transportation , Communication , Utilities +6 + 15 -15 +847 Wholesale & Retail Trade +71 +15 +85 +2,840 Finance , Insurance, Real Estate +8 +7 -1 + 548 Service -5 -26 + 233 +14,995 TOTAL -334 -272 +222 +16,541 ♦Subdivisions of "Manufacturing" category including only those establishments with more than 25 employees. Source: Division of Employment Security Table 16 Percent Change in Population and Employed Ware Town and Springfield Labor Force SMSA , 1960-1973 1960-1965 1965-1970 1970-1973 1970-1973 S.I.C. Category* Ware % Change Ware % Change Ware % Change Springfield SMSA % Change Population +4.9 + 3.8 +2.5** +1.2** Mining -14.0 +1.0 -33.0 -4.6 Construction -33.8 +98.0 +36.0 +0.4 Manufacturing -16.3 -17.0 -6.2 +0.7 -Textile* -23.5 -14. 3 +1.7 -Apparel -56.3 +105.7 + 25.0 -Shoes -7.7 -38.8 -50.5 -Paper +9.4 +11.6 + 29.6 -Machinery -7.7 -17.9 -15.0 Transportation , Communication & Utilities +14.0 + 30.6 -23.4 +10.6 Wholesale & Ke^aix iraue +21.1 +3.7 + 20.6 + 7.0 Finance, Insurance & Real Estate +10.3 +8.1 -1.0 +5.7 Service -4.3 -19.0 +250.6 +91.4 TOTAL -11.0 -10.0 +9.2 +11.2 *Subdivisions of "Manufacturing" category included only those establishments with more than 25 employees. Source: Division of Employment Security **Estimated 54 In 1960, about 4 out of every 5 jobs in Ware were in manufactur- ing/ and by 1973 only 3 out of every 5 jobs were in manufacturing. This decline represented a net loss of 828 jobs. Standing in contrast to this trend, employment in wholesale-retail trade in- creased slowly but steadily, and in the construction sector, employ- ment increased rather rapidly with respect to the other sectors. Growth in the remaining economic sectors occurred sporadically, making the determination of any significant trends difficult. The result of these relatively contrasting changes in the employ- ment structure was not good. Total employment declines by about 20 percent between 1960 and 1970, and increased only slightly between 1970 and 1973. In 1973 there were 384 fewer jobs than in 1960. Focus on Changes in the Manufacturing Base As mentioned previously, the textile and leather industries historically have maintained a dominant position in the economy of Ware. The decline of the textile industry in Ware after World War I brought about Ware Industries, and since then its occupants until very recently have been almost entirely from the textile, apparel and shoe industries. As a result it has suffered from many of the same problems that have contributed to the decline of textile and shoe mill activity throughout New England. Figure 4 focuses on the relative change in employment in the manufacturing sector. 55 The largest decline in manufacturing employment during the period occurred in the shoe industry. The culmination of a long period of contraction occurred in 1973 with the closing of Ware Shoe Company. During its peak. Ware Shoe Company employed between 400 and 500 people, and at its time of closing it repre- sented a loss of about 300 jobs. The next largest decline in manufacturing employment occurred in the textile mill products category. Within this category one of the most recent losses to Ware was the closing of Oxford Mills (carpets) . At its closing in 1973 it represented a further loss of about 150 jobs, although many of the layoffs occurred gradually several years earlier as Oxford Mills began to phase out operations in Ware. As a result, the employment figures in Tables 13 and 15 do not exhibit the ex- pected abrupt decline in employment as was the case for the shoe industry for Ware Shoe Company. On the positive side, the factory building vacated by Oxford Mills, not a part of Ware Industries, has recently been taken over by a member of the printing and publishing sector. Silk Screen Service, presently operating with about sixty-two employees. With- in Ware Industries, Rindge Industries, Inc. (textile mill products) has expanded into some of the floor space formerly occupied by Ware Shoe Company. Nemetco Plating, presently employing about eight to ten persons, has moved into some of the vacated space. Since 1960 a significant expansion of manufacturing activity occurred within the paper products sector. Here, Ludlow Corpora- tion alone is responsible for the sustained increase in employ- ment. In 1973, the Ludlow Corporation completed a two million dollar expansion of its coated paper division. Additionally, since 19 60 sporadic changes in employment have occurred in the apparel sector, but employment in this sector in 1973 is only slightly above the 1960 level. Changes in the structure of the economic base can be ex- amined against the backdrop of population trends. A decline in a community's basic activities can often adversely affect popula- tion growth. Diminishing employment opportunities result in in- creasing out-commuting to growing employment centers within a region, and diminish population growth. In Ware the decreasing rate of population growth indicated in Tables 15 and 16 between 1960 and 1970 is a reflection of the stagnant economic conditions illustrated by employment figures. Nevertheless, the growth in population, beyond natural increase, and the growth in housing stock, is the catalyst for the upward trends in such nonbasic activities as wholesale-retail trade and finance, insurance and real estate. This continued population growth also indicates the growing importance of Ware as a residential community, particu- larly its growing dormitory function for people who commute to places of employment within the region. We shall examine this phenomena presently, but first we must examine the more immediate effect of the decline in economic activity, the unemployment situation . Unemployment Unemployment figures reflect both seasonal or temporary layoffs and also permanent layoffs from plant closings; and, as a result, they are indicative of changing economic conditions. Because they are subject to many kinds of interpretation, unem- ployment figures must be examined with some caution. Unemployment as determined by the State Department of Em- ployment Security includes only those who qualify for, and there- fore are receiving unemployment benefits at the time of reporting. These unemployment rates are now calculated by the place of resi- dence, but prior to 1970 the rates were calculated by place of employment. This makes it difficult to determine long range un- employment trends. Also, unemployment rates for a labor market area based on place of residence tend to be lower when compared to unemployment rates for the same labor market based on place of employment, when a large proportion of the resident labor force work outside the labor market area. For such an area the resident labor force is much greater than the employed labor force thereby increasing the base from which unemployment rates are calculated. This is illustrative of the Ware Labor Market Area. Table 17 gives figures on unemployment on an average yearly basis from 1970 to 1973. The town of Ware is the center of the Table 17 Unemployment and Resident Labor Force, Ware Town, Ware Labor Market Area Springfield SMSA, 1970-1973 1973 Adjusted From Geographic Area 1970 1970 1972 197 3 Survey Springfield SMSA ; % Unemployed* 5.6% 8.4% 6.6% 6.6% (Resident Civilian labor force) Ware Labor Market Area: Number unemployed* 500 990 770 1100 (Resident Civilian labor force) % Unemployed* 4.9% 8.8% 6.7% 9.5% (Resident Civilian labor force) Ware Town ; Number unemployed*^ 185 361 277 352 473# (Resident Civilian Icibor force) % Unemployed*© 5.0% 9.7% 7.4% 9.5% 12.7%# (Resident Civilian labor force) Resident Civilian© 3757 3713 3742 3717 3717 Labor Force Total Percent Unemployed© 37.0% 36.0% 35.0% 32.0% 43.0%# to labor market area total un- employed *Average Annual unemployment. *Source; Division of employment security ©Source: Calculated by author using D.E.S. allocation method #Calculated by author using 1973 D.E.S. survey data 57 Ware Labor Market Area which includes eight other surrounding towns. Figures on unemployment, however, are not aggregated for individual towns within the labor market area, and therefore must be estimated using an alldcation method. A common method used by the Division of Employment Security is based on the assumption that for Ware, as an example, its share of the labor market area unemployment is proportional to its share of the labor market area labor force. The resident labor force in Ware must also be esti- mated, and for every 100 people actually employed in Ware (the employed labor force) about 155 people reside in Ware who are part of the resident labor force.* Not surprisingly, the trend in unemployment for the town of Ware closely parallels the trend for the labor market area. Unemployment declined from 37 percent in 1970 to 32 percent in 1973, but, in 1973 a D.E.S. random sample survey of the unemployed in the Ware Labor Market area (10 percent sample) revealed that 4 3 percent of the unemployed people surveyed lived in the town of Ware. If this is representative of total unemployment, then a larger amount of the unemployed labor market must be assigned to the town of Ware. This survey, if valid, indicated an unem- ployment of 12.7 percent for 1973.** It must be pointed out, however, that the survey was taken just after the closing of Ware Shoe Company and Oxford Mills when there may have been a temporary peak in unemployment. Table 18, extracted from the 1973 D.E.S. sample survey, shows the unemployed residents of Ware allocated according to the sector in which they were last employed. Almost three of every four of the unemployed came from the most important basic activity in Ware, the manufacturing sector. Forty percent were previously employed in the shoe industry and 2 5 percent were previously employed in the textile industry. ♦Ignoring in and out migration, this indicates that there are not enough jobs in Ware to employ all the people in Ware who want to work. The result of this type of situation is either out-migration for employment, unemployment within the community, or both. **This is much higher than the unemployment of 9.5 percent indicated by the allocation method of D.E.S, Table 18 Unemployment Survey, Resident Labor Town of Ware, April, 1973 Force, S.I.C. Category Number of Unemployed Percent Total Unemployment Construction 2 5% Manufacturing 29 73% -Textiles* 10 25% -Apparel 1 2.5% -Shoes 16 40% -Paper 2 5% Transportation , Communication , Utilities 0 0% Finance , Insurance & Real Estate Z Wholesale & Retail Trade 2 5% Services 4 10% Mining 1 2.5% TOTAL 40 100% ♦Subdivisions of "Manufacturing" category. Percentages calculated to total unemployment . Source: Division of Employment Security 58 Employment in some sectors of the economic base is highly seasonal. In particular in the textile industry unstable market demands often cause long periods of inactivity. As a result lay- offs are often long and frequent. Monthly figures on unemployment can be quite variable, often with changes of one or two percent of the employed labor force from month to month. For example, the unemployment in the Ware Labor Market Area was reported to be 10.4 percent in December, 1971. This was 0.6 percent above the November estimate and 1.7 percent above the June estimate. Labor Force Mobility: In and Out Commuting According to Table 19, of the towns in the region. Ware itself. Palmer and Warren are the more important centers of em- ployment. Manufacturing is the most important economic activity in each of these towns. The remaining towns are mostly agricul- tural and residential in nature, although some have important wholesale-retail and service functions. Recently, Ware's status as a center of employment has suffered a decline. Diminishing employment opportunities, in parti- cularly the textile and shoe industries, and increasingly more lucrative and attractive employment opportunities outside Ware have combined to increase outward commuting. The nature of this flow pattern can be estimated by comparing employment in the resi- dent labor force with the employed labor force. Interviews with several employers in the manufacturing sector revealed that about 70 percent of their employees reside in Ware. This was taken as a rough approximation for the entire employed labor force residing in Ware and then applied to April, 197 0 D.E.S. employment figures for each sector of the economic base. An indication of the magni- tude of the out-flow of Ware residents is presented in Table 11. The largest net out-flows occur in the service and manu- facturing sectors. Table 18 presented the work place of Ware res- idents in the labor force at the time of the 1970 federal census. According to this census, 67 percent of the Ware resident labor force work in Ware, Belchertown, Amherst, or Pelham. (A fur- ther breakdown is unavailable) . By our calculations about half 4J C C •H C ■H c o Eh I I •0 tH (U -iH 0 <+-! ■p ^ >H 0 o u C QJ 0 0) jC u )-i O m < < )H iH EH (0 OJ (0 O s (l4 m Eh '3' d Xi O o 00 VO r~ H CO cn VO in CTl (— ! rH rH rH rH vo ro O (N CM O 1 1 1 o 1 1 ID 1 1 1 O 1 1 1 1 1 rH LO rH fd (i ti 1 1 rH ro CO CN rH 1 vo' r-- C* c c iH 1 1 1 1 1 O CM rH 1 1 1 CO vD r~ O 00 00 rH o 1 t o 1 1 rH i-H CN Li) 1 in f-\ CN in CN 1 CM CM VD in ■H CTi rH ro O 00 CO CnJ vD o rH iH ro CM vD rH rH CM 00 rH CN CM vD in rH 1 1 o 1 1 1 O 1 I 1 1 rH o t— 1 o * 1 ro CM • • • • (0 1 • • Cn CN ' in C c" VD in VD 1 1 00 cn O iH CO i-H 1 1 o rH in CnJ 1 1 ro LO 00 in 1 ro O 1 1 CO 1 o 1 1 1 rH CO (H in * o LD 1 VO VD VD 00 ro in 1 ro ro crt CO ^ C CM o ro r~- 00 VD 00 ro iH rH 00 CN rH CM ro o 1— 1 r— 1 iH 1 ld 1 — ! VO ro in CN 1 O 1 1 ro 1 o 1 1 1 rH 1 1 [ — in 03 1 (N rH CM ro 1 in in m VO C ro ro 00 iH rH ro VD 00 o VO o o o u 0) 4J CO (1) O u B C T) O G -H 03 Cn Q) rH 03 U ■P 3 O -H U cn 0) U 03 e •H cn u O (0 •H U +J o 14H XI o 03 U rH •H (U OS W > Q) 03 J5 Eh -P B . 03 i -P Xi 03 CO Sh 0) cn 4J gd) •H 14H - o ^ H ^ H cu Xi -p MH o >i u o Cr 0) ■p 03 u cn -H ■p c •H ■H m u 03 s tn V*H o 0) CO 3 03 O (U XI 03 rH •H 03 > 0) -P o c 03 ■P 03 Q * C (U a o rH > (U Q C OS 0) O U 0) O U MH O +J G (1) 03 (1) Q CO -P ■P i ■p •H U -o c 03 O EH CU O U 3 O CO Table 20 Commuting Patterns: Labor Force Mobility, Ware Town, April, 1973 S.I.C. Category Employment by Place of Residence (Resident Labor Force) Employment by Place of Employment (Employed Labor Force: Allocated) Difference Total Employed* (April, 1973) Total Employed# (April, 1973) Male Female Total Total Mining Construction Manufacturing -Textiles Transportation , Communication, & Utilities Wholesale & Retail Trade Finance, Insurance, & Real Estate Services (Private) Services (Public) Total Services Other TOTAL 0 305 1025 (208) 42 260 28 (146) (266) 412 90 2162 4 100 1748 (247) 8 168 70 (105) (313) 418 0 1516 4 405 1773 (455) 50 428 98 (251) (579) 830 90 3678 4 50 1163 (555) 43 277 61 (151) 216 0 1814 0 -355 -610 (+100) -7 -151 -37 (-186) (-428) -614 -90 -1864 ♦Source: 1970 Federal Census #Source: Allocated from Division of Employment Security Data assuming 70 percent of people employed in Ware live in Ware. 59 (49 percent) of the resident labor force works in Ware, and the remainder (51 percent), or about 1,8 64 people commute to work outside Ware. It should be noted that in the 197 0 federal census about one third of the labor force in Ware did not report their place of work. This can greatly influence the results based on the census. But, the orientation of the outflow of the labor force is clearly towards the West and Southwest. According to Table 21, about 23 percent of the labor force reporting their place of work located it within the Springfield S.M.S.A. (the largest portion (14 percent) worked in the S.M.S.A. outer ring towns of Palmer and Warren) . Only 5 percent reported their place of work to be within the Worcester S.M.S.A. For the economic base as a whole, for every 100 Ware residents who commute to places of work outside Ware, about 4 2 non-Ware residents commute into Ware to work. Within the manufacturing sector a large inflow of workers occurs to the textile and apparel mills of Ware industries. Un- fortunately, this is the only part of the manufacturing sector for which comparisons could be made. Nevertheless, a large por- tion of these workers are women and most reside in towns to the east of Ware. Problems of the Economic Base The malaise of the textile and shoe industries both nation- ally and within New England has been examined by many interested authorities. (An excellent summary is given in: New England: A Study in Industrial Adjustment , by R. C. Estall, Praeger.) The reasons for the general situation may be briefly outlined. First, on a national scope, the market for textile and leather products has been relatively static, especially since World War II. This has occurred at a time when important advances have been made in labor saving techniques which increase labor productivity and lead to a considerable loss of jobs. Furthermore, both textile and leather products have been facing increasing competition from substitute materials manufactured by paper and plastics industries. Table 21 Work Destination, Resident Labor Force, Town of Ware, April, 1970 Destination Number of Employees Percent of Total City of Springfield 166 6.9 Holyoke & Chicopee 31 1.3 Inner Ring Towns (Springfield SMSA) 27 1.1 Outer Ring Towns* (Springfield SMSA) 334 13.8 Springfield SMSA (559) (23.2) Worcester SMSA 118 4.9 Ware, Amherst, Pelham, & Belcher town 1,614 66.8 Other (Non-Metropolitan) 125 5.2 TOTAL 2,414 100.0 ♦Includes Town of Warren Source: 1970 Federal Census 60 Finally, against this background, the imports of textile and leather goods have risen causing severe competition for the slowing ex- panding market. Within New England, the textile and shoe industry continues to face severe competition from southern states. Historically, the most decisive competitive consideration has been the labor cost difference, although recently this dimension has become less significant. Lower fuel and power costs in the South have tended to add further weight to the advantages claimed for the southern states. The energy crisis, particularly in New England, has in- creased the significance of the fuel and power consideration. Another dimension adversely affecting the New England textile and shoe industries has been the relatively strict air and water quality standards imposed on industry by some states, notably Massachusetts. Locally in Ware, Ware Industries has had to endure the brunt of the prolonged malaise of the textile and shoe industries. The rapid turnover in textile and leather mill occupants of Ware Industries, and the often long seasonal layoffs, have brought about the situation of cronic and substantial unemployment. Yet, paradoxically, the textile and leather segment of manufacturing in Ware Industries does not enjoy a labor surplus situation. With unemployment in the Ware labor market generally above that for the Springfield S.M.S.A., advertisements, nevertheless, appear periodically in local newspapers for textile or leather mill workers. There is usually little or no response. The explanation is inter- twined in the relationship between unemployment benefits and wage levels and working conditions in the textile and shoe mills. Table 22, 23 and 24 all present information on average annual wage levels for the economic base sectors of Ware and for the Springfield S.M.S.A. and the state. Except for construction and the finance, insurance and real estate sectors, wage levels in all sectors are generally below those for the Springfield S.M.S.A. and the state. The lower wage is especially large for manufactur- ing. The average annual wages in the textile, apparel and leather Table 22 Average Annual Wage, Ware Town, Springfield SMSA and State of Massachusetts, 1973 S.I.C. Category Av. wage Ware ($) Av. wage Springfield SMSA ($) Rel. Diff .* Base= Ware# Av . wage State Mass . ($) Rel. Diff.* Base= Ware# Mining 5,553 8,027 0.69 9,712 0.57 Construction 12,585 11,660 1.08 11,496 1.09 Manufacturing 7,294 9,116 0.80 9,459 0.77 Transportation, 6,883 9,757 0.71 10,654 0.65 Communication & Utilities Wholesale & 5,499 5,784 0.95 6,619 0.83 Retail Trade Finance, 8,758 8,097 1.08 9,079 0.97 Insurance & Real Estate Service 5,626 6,337 0.89 7,426 0.76 TOTAL 7,058 7,805 0.90 8,394 0.84 (average) (for) (entity) ♦Relative Difference Index = Ware Av. Wage r Springfield SMSA or State Av. Wage #Numbers greater than 1.0 indicate Ware wages higher, and numbers less than 1.0 indicate Ware wages lower Source: Division of Employment Security Table 23 Percent Change in Average Annual Wages Ware Town, Springfield SMSA, 1970-1973 Av. wage Av. wage % Av. wage Av. wage % 1970 1973 Change S.I.C. 1970 1973 Change Sprngfld Sprngfld Sprngfld Category Ware Ware Ware SMSA SMSA SMSA Mining Construction Manufacturing Transportation , Communication & Utilities Wholesale & Retail Trade Finance , Insurance & Real Estate Service TOTALS (average wage) 5,209 5,553 11,436 12,585 6,229 7,294 5,484 6,883 4,741 5,499 7,036 8,758 5,828 5,626 6,197 7,058 7.0 n.a. 10.0 9,950 17.0 7,655 25.5 8,101 16.0 5,084 24.5 6,992 -3.5 4,609 14.3 6,721 8,027 11,660 17.0 9,116 19.0 9,757 20.0 5,784 13.8 8,097 15.8 6,337 37.5 7,805 16.0 Source: Division of Employment Security Table 24 Average Annual Wage, Manufacturing Categories Town of Ware, State of Massachusetts, 1973 S.I.C. Category Av . wage Ware Av. wage State Mass . Index of Rel. Diff .* All Manufacturing Textiles Apparel -Shoes -Paper Machinery 7,294 6,759 5,634 5,384 9,855 8,095 9,459 7,529 5,748 6,590 9,273 11,247 0.77 0.90 0.98 0.82 1.07 0.72 *Index of Relative Difference = Ware Av. Wage r State of Massachusetts Average Wage Note: Numbers greater than 1.0 indicate Ware wages higher, while numbers less than 1.0 indicate Ware wages lower. Source: Division of Employment Security 61 products industries, are both the lowest in the whole manufactur- ing sector, and are also below the average for the state. Workers in these industries in Ware are entirely non-union, while workers in the paper products sector, the Ludlow corporation, are unionized. This condition is reflected in the relatively high wage levels for the paper products sector. Recent increases in wages for manufacturing workers have not kept pace with increases for the Springfield S.M.S.A. In Ware wages in wholesale-retail trade and finance, insurance and real estate have increased more rapidly than the other sectors while in the Springfield S.M.S.A. services and transportation, communication and utilities have increased most rapidly. Wage levels tend to reflect not only unionization conditions and the structure of the economic base, but also the occupational status of workers within the various sectors of the economic base. Table 16 presents the resident labor force by occupational category as reported in the 1970 federal census. About 37 percent of labor force reporting their occupation were employed in low level blue collar jobs. The largest portion of this category is represented by "operatives," or, in other words, semi-skilled operators of machinery. The majority of these workers, of course, are employed within the textile, apparel and shoe industries. Also of significance to an examination of wage levels is the relative employment of women. Women represent 41 percent of the resident labor force in Ware by both occupational category and industry, and are employed in about the same proportion (4 2 percent) within the manufacturing sector. Fifty-four percent of all tex- tile, apparel and shoe mill workers are women, where they function predominantly as operatives. Operators of spinning machinery, and sewing machines for apparel and footware are all almost en- tirely women. Additionally, half of all the women in the labor force are married with their husband present, and 28 percent have children under 18 present in the home. Relative to their membership in the labor force in Ware, a large percentage of the unemployed are women. The 1973 D.E.S. Table 25 Occupations, Resident Labor Force Ware Town, April, 1970 Occupational Number Number Percent Category Male Female Total Total Professional , 136 114 250 8.4 Technical & Kindred Managerial , A A 4U 234 7.8 Administration Sales A Q oU 109 3.5 Clerical, Kindred 99 282 381 12.8 Craftsmen, Foreman, 464 X D . D Kindred Operatives (except 481 469 950 31.8 transport) Transport Equip. 85 0 85 2 . 8 Operatives Laborers (except farm) 126 5 131 4.4 Farm Managers 14 0 14 0.5 Farm Laborers 28 0 28 0.9 Service 164 173 337 11.3 Private Household 0 6 6 0.2 SUBTOTAL 1,785 1,204 2,989 iOO . 0 Not Reported 419 326 745 — TOTAL 2,204 1,530 3,734 Source: 1970 Federal Census Note: Percent labor force "blue collar" occupations = 55.9 (-percent low level "blue collar" occupations = 37.1) (-percent high level "blue collar " occupations = 18.8) Percent labor force "white collar" occupations = 44.1 62 survey of the unemployed residents in Ware reported 53.2 percent to be women. Of those classified as the low level blue collar unemployed 71 percent were women although only 39.7 percent of the total labor force classified as low level blue collar are women. In theory, poor wages can sustain cyclical or periodic unemployment at high levels, if unemployment compensation levels are also high. The welfare loss or economic hardship of unemploy- ment depends on the difference between unemployment compensation and weekly wages. If the difference is small, individuals may often find little incentive to seek work. How soon individuals find jobs varies according to family status and personal reasons such as financial status and the value placed on leisure. The Treasury Adjustment Act, designed to aid industries affected by competition from imports, raised the base benefits of unemploy- ment compensation from 51 to 65 percent of the average weekly wage. In Ware, with its labor force dominated by the textile and shoe industries, the result has been the existence of relatively high unemployment compensation benefits. In a perceptive study of unemployment in Ware by D. A. Wojcik and C. Harris entitled "Why Work" (B.A. Honors Thesis, Amherst College, 1973) the authors main tain that cronic and substantial unemployment in Ware is more the result of poor wages than high unemployment compensation benefits. They conclude: "Unemployment in Ware is so high. . .because Individ uals feel they are better off unemployed than accepting available jobs... From an individual point of view, a good many people are unemployed, not because they cannot find a job, but because the jobs available are not attractive in terms of pay or working condi tions . " Industrial Development The opportunities for industrial development can be examine within the framework of site and situation considerations. The relative advantages and disadvantages of Ware as a possible loca- tion for manufacturing, and the local availability of existing industrial space and of new sites for industrial development must all be considered. 63 A recent survey of industrial management by the Survey Research Center, University of Michigan, revealed the six most important locational factors for manufacturing in order of im- portance to be the following: 1. Labor costs (wages, productivity) 2. Proximity to markets (including transportation costs) 3. Availability of labor (skills, supply) 4. Industrial climate (attitude of state and community towards industry) 5. Taxes 6. Proximity to materials (including transportation costs) These factors closely correspond to industrial location theory. Some qualifications included the finding that consumer goods industries place greater emphasis on proximity to market than the remaining factors, and that the manufacturers of rubber, plastics, petroleum, chemical products and primary metals place far less emphasis on the availability of labor - though not costs of labor - than the remaining. Relative to these location factors we may summarize Ware's disadvantages and advantages as follows : Ware's Disadvantages First, Ware is located about halfway (about 30 miles) between the regional population centers of Springfield and Worcester. Not lying within either of their immediate spheres of influence. Ware is somewhat isolated and not quite as accessible to these centers as towns lying within either of these two metropolitan areas (S .M. S . A. ' s ) . Additionally, Ware is even more isolated from regional markets around Boston and the population centers that are concentrated within the Connecticut valley. The isola- tion of Ware is not only in terms of distance, but more impor- tantly, in terms of accessibility. As far as highway transportation is concerned. Ware is not easily accessible to the most important East-West corridor, the Massachusetts Turnpike. Direct access by Route 32 is presently 64 inadequate for heavy truck transportation, and improvements in this road would greatly benefit Ware and increase its stature as a location for industry. In terms of the railroad network, Ware is served by the Penn Central system which runs a branch line from Palmer, north through Ware to Barre. The possibility exists that this branch line may be discontinued due to lack of traffic. If this occurs, it would be detrimental to the economy of Ware and diminish the attractiveness of Ware as a location for industry. It is encour- aging that a local citizen Transportation Study Group has been formed to attempt to forestall this foreboding prospect. If the railbed and track could be upgraded and sidings purchased from the Boston and Maine railroad, the industrial potential of Ware could be greatly improved. Advantages As indicated previously, variations in wage costs and pro- ductivity are important locational considerations in some indus- tries. However, the relatively low wage levels existing in Ware are not, in themselves, completely advantageous. Of equal or greater importance to industry are such factors as labor attitudes, turnover, absenteeism and the possibility of having to compete with other firms in the vicinity for available labor (all directly affecting productivity). Additionally, an area such as Ware, with predominately low wage industries will often attract new industry seeking to pay low wages rather than those which tend to pay high wages. The textile, apparel and shoe industries usually pay low wages. They are generally characterized as labor intensive and tend to respond strongly to labor cost differentials. Thus the low wage levels in Ware are usually of greatest interest to low wage paying industries. In the Ware Labor Market area a labor force for new industry is undoubtedly available. The labor force is predominantly non- union, and a variety of semi-skilled machinery operators for mech- anized production could be drawn from the existing unemployment pool in the labor market area. Nonetheless, as previously noted. 65 wage levels must be high enough and other working conditions at- tractive enough to entice individuals to accept newly available jobs. Also, wage levels and working conditions must have enough appeal to stem the increasing inter-industry mobility of former textile apparel and shoe employees, and other Ware residents, who have found employment outside Ware. Ware's labor force is easily accessible to a variety of vocational-technical schools and colleges in Worcester and Spring- field, and the people of Ware would undoubtedly welcome new in- dustry. As the Springfield S.M.S.A. expands towards Ware, and as access to the Springfield area improves. Ware will undoubtedly take on a more dormitory and residential character. From the standpoint of its potential for industrial development, this will be an additional factor in Ware's favor. For a community to successfully attract new industry not only must locational considerations be favorable for the community, but also, either existing industrial space or sites for new in- dustrial space must be available. Existing Industrial Space The largest amount of existing industrial vacant space in Ware lies within Ware Industries. The entire building complex contains about 610,000 square feet. The recent turnover in occupants has created about 134,000 square feet of vacant space for lease as of December, 1974. This represents about 28 percent of the total floor space. However, not all of this usable, and not all would be desirable for many types of manufacturing since some of it is second and third story floor space. The most important advantages of Ware Industries operations are: (1) low water rates, (2) low steam rates, and (3) low rent. The type of manufacturing requirements which are best met by Ware Industries operations are those of the textile, apparel and shoe industries. Besides these, other labor intensive industries could also benefit from Ware Industries operations, particularly those requiring semi-skilled and skilled labor producing special items 66 and meeting small orders. In fact, some of the more recent occu- pants of Ware are small industries of this type. Two requirements which Ware Industries imposes upon poten- tial occupants are that they (1) have non-union employment, and (2) are non-competitive with certain of the existing occupants of Ware Industries. These requirements, quite obviously, restrict the industrial potential of Ware Industries. The restriction on competitive business also guarantees less competition for labor and does not help develop a more diverse employment area. New Space for Industry: Industrial Parks Recently an Industrial Development Commission was formed which is working towards the goal of industrial development. This includes the possibility of developing sites for industrial parks. The type of industries which have been attracted to industrial parks can be grouped into two categories: (1) Industries which have experienced a rapid growth in employment and productivity. Most of these are durable goods industries. Electronic products is a well known example. (2) A wide variety of industries which have moved within metropolitan areas to new and improved facili- ties . Industrial Parks can be a very important factor in indus- trial development. As previously mentioned the Industrial Develop- ment Commission is presently desirous of attracting new industry development in Ware. Because industrial parks can require con- siderable expenditure of community resources and effort some of the implications, particularly involving planning, must be noted. Most importantly, an industrial park must be sufficiently large and suitably zoned to allow room for the industry to grow without destroying buildings or encroaching on a housing development. Secondly, it should be located at or near an access to a major highway. Railroad availability is also desirable for large sites. Finally, it should offer a complete utility pattern including power, sewers, water and gas. A full examination of sites for industrial space, which might serve as industrial parks, must rely on 67 an analysis of land use and land--environmental capability in the town. Presently, the nature and location of utilities and roads present obstacles to the development of industrial parks. Adequate sewer and water facilities for industrial use do not exist at present. Ware presently has a fully operational primary sewage treatment plant, but it is not capable of treating indus- trial waste. Also, there is a need for improvement of town roads and connectors to major highways. Finally, Ware lacks a suitable zoning by-law for industrial land use and potential development. Conclusions and Recommendations The most pressing problems confronting Ware's economy are its declining manufacturing base and the imbalance in that base as reflected in the predominance of nondurable goods industries. Industrial growth is an objective of many communities that are faced with similar problems to Ware's. The benefits of industrial growth and its implications for planning for physical development must be considered. First, industrial growth can contribute to reducing chronic unemployment, a major economic problem in Ware. Secondly, through the "multi- plier effect," an expansion in job opportunities can occur in such non-basic or community serving activities as, for example, con- struction and retail trade. Finally, industrial growth can contri- bute to strengthening the tax base. The advantages and disadvantages of Ware as a location for industrial development have been examined in the economic base report. Ware presently has a large amount of existing vacant industrial space in Ware Industries. The Industrial Development Commission should expand its promotional efforts to attract in- dustrial firms who can benefit from the advantages of Ware In- dustries. Small scale firms requiring semi-skilled and skilled labor producing specialty items should find space in Ware Indus- tries suitable for their needs. Our analysis of land use and land capability has identified only one area of the town suitable for industrial use. This land 67a is identified on the Proposed Zoning Map, and is located generally south of the town center off Route 32 near the Palmer town line. The possible development of this land into an industrial park will require further study. Industrial park development requires a considerable investment of community resources and proper plan- ning. Our preliminary evaluation of the industrial development potential of this area indicated that it is borderline between having "minor" to "good" potential. Since this land area seems to be the only one suitable for industrial development in the town, we recommend that it be zoned for industrial use as indicated in our zoning proposal. Should other uses be developed in this area, the town would find it difficult to find alternative space (land) suitable for industrial use. We also recommend that our preliminary evaluation be fol- lowed by a systematic program to determine fully the industrial development potential of the designated industrial use area. This could be accomplished by the Industrial Development Commis- sion at minimal cost to the town, and it should include generally a detailed analysis of industrial development constraints or obstacles within the designated area. The next step in the pro- gram should be an industrial marketing study to determine the likelihood of attracting industry to the industrial use area. VJare is part of a region that is presently suffering from chronic and substantial unemployment. To many in the town's labor force who are unemployed, and have automobiles, it would un- doubtedly make little difference whether new employment opportun- ities are located in Ware or elsewhere. Even if the possibility of industrial development becomes more feasible as the result of our recommendations, it is unlikely to become a reality for a number of years to come. In the near future, pending an improvement in the national economy, a significant increase in industrial growth and expansion is anticipated by the State Department of Commerce and Development within the region — i.e. the eastern part of the Springfield SMSA. Outward commuting from Ware to new 6 7b areas of employment will probably increase and the high rate of unemployment should therefore decline. The effect of the "energy crisis" on employment area travel patterns is of some import, but it is difficult to predict. An improvement in employment opportunities outside V7are, however, does not benefit the tax base of the town. A modest increase in residential development is likely to occur because of the anticipated population growth within the region, but, it would do little to enlarge the tax base and distribute the tax burden more equitably among non-residential users of land. The industrial marketing study we propose is likely to in- dicate that the outlook for industrial development in Ware may indeed not be good. Considering the location of the recently completed industrial park in Palmer, and the recent proposal for the industrial development of part of Westover Air Force Base, Ware will find itself at a disadvantage within the region in competing for new industry. As a consequence, at the present time the town must con- sider the possibility of the economic development of its natural resources. Tourism and recreational activities offer a potential for economic development that have been largely unrecognized. A recently completed (19 69) Natural Resource Program for the town, authored by Hampshire County planners and the Ware Town Advisory Group, examined the recreational potential of both public and private land. The report located and identified extensive areas potentially suitable for a wide variety of recreational uses including skiing, snowmobiling, horseback riding, camping and boating. Also, there are physical and scenic areas of the town that have potential as tourist attractions. The Quabbin Reservoir is perhaps the most important. There is also some poten- tial for tourism and canoeing activities along the Swift and Ware rivers. Private development of some of the recreational resources is a possibility. If developed as a basic activity, the result could be an important flow of money into the town and an improvement 67c in the tax base. One possibility is the development of a "Story Book Forest" in one of the extensive woodland areas close to Route 9. This type of enterprise provides both an educational and recreational experience for children. The economic benefits of such a development that accrue from the "multiplier effect" would be reflected in an increased demand for tertiary goods and services provided by such recreational related activities as motels and restaurants. Tourism, along with recreational activities, have increased in importance nationally as individuals now enjoy increasing periods of leisure time. An inventory of historic sites in Ware has been completed. These historic sites can be promoted as tourist attractions, and the possibility exists for handicraft and art workshops and exhibits to be organized to complement the historic attractions . We therefore recommend that the town provide the funding for a paid full time Executive Director or Secretary of the In- dustrial Development Commission. The main purpose of this recom- mendation is to enable the commission to develop a program to promote the development of the economic resources of the town, particularly to determine the feasibility of implementing the economic development suggestions in this report. 68 Manufacturing Directory Firm WARE INDUSTRIES, INC. American Girl Fashions, Inc. Frederic's Knitted Fabrics, Inc. Nometco, Inc. Pioneer Knits, Inc. Rindge Industries, Inc. Roman Knitting, Inc. Seven Sisters Company Slaven & Gordon, Inc. Ware Knitters, Inc. Ware Machine Works, Inc. OUTSIDE WARE INDUSTRIES American Athletic Shoe Company Cady Gillespie Company Goldstein & Guritz Quabbin Engineering, Inc. Ketchen Depot Ludlow Corporation Ryan Manufacturing Company Talbert Welding Ware Coupling & Nipple Ware Foundary, Inc. Ware River News, Inc. Silk Screen Service Location Main St. , East St. South St. River Road Pine St, West Street Maple St. Mechanic St. Cummings St. Route 32 North Street Milner St. Pine St. Church St. Route 32 Product Category Apparel Textile Products Metalic Plating Textile Products Textile Products Textile Products Apparel Textile Products Textile Products Machinery Footware Lumber Machinery Coveralls Machinery Machinery Finished & Coated Paper Products Furniture Products Fabricated Metal Products Fabricated Metal Products Primary Metal Products Newspaper and Printing Printing transportation Roads and Highways Rail Service Airports 69 76 80 I I I I I Map 7 FUNCTIONAL CLASSIFICATION OF ROADS TRANSPORTATION Transportation is essentially a service which enables people, firms and various other entities to carry on activities at sites selected for these purposes at separated locations. Movement or circulation systems connect the various activities or land uses within a community and also integrate the community with the region and areas beyond. The existing uses of land and the future development of land is strongly influenced by the accessibility that any particular activity has to certain other activities. The primary objective of transportation planning therefore is to design circulation systems and improve deficiencies in existing circulation systems so as to maximize the accessibility between linked activities giving due considera tion to safety, comfort and amenity as well as cost. Roads and Highways The functional classification of roads and highways used by the State Department of Public Works (DPW) identifies four main categories of roads: Principal Arterials, Minor Arterials, Collector Roads and Local Streets and Roads. All categories are grouped into urban and rural components. These road and high- way system characteristics are described in Table 26, and their location is shown on the map. In Ware the Principal Arterials are state highway Route 9 and state highway Route 32. The only Minor Arterial is the West Warren Road. Both the Principal and Minor Arterials have low order access controls, stop signs or yield signs, and all converge on the Central Business District (CBD) of Ware. Traffic conditions and deficiencies of the road and highway system outside the CBD will be examined first. Attention will then be focused on the more intensively urbanized CBD where the nature of the problems are somewhat different, although neverthe less interrelated with the rural arterials and collectors in the remainder of Ware. Table 26 System Characteristics Principal Arterial - Serves long distance trips of Inter and Intra State importance. Links urban population centers of greater than 25/000 population. Minor Arterial - Connects most traffic generators of regional importance. Serves the principal activity centers within urban areas and population centers of greater than 5/000 population. Collectors - Provides intraregional service to the small rural communities and provides access to urban residen- tial areas. Services the remaining traffic generators not served by any of the higher systems. Local - Provides direct access to adjacent property. Urban - Areas having urban characteristics and having a 1968 population of 5,000 or more including urbanized areas. Prepared by: Bureau of Transportation Planning and Development/ Mass. Department of Public Works 70 Tables 27 and 28 present Average Daily Vehicle (Traffic) coonts (ADT) at various locations for the Principal and Minor Arterials outside the CBD. Unfortunately, because the ADT counts are for different years, contrasts and comparisons must be viewed with caution. Table 27 Changes in A.D.T. Vehicle Counts at Two Locations on Major Arterials Arterial Location Route 32: Palmer Date : 1960 1970 1972 1974 town line A.D.T. : 3480 4200 4600 4925 Route 9, 32: Date : 1960 1970 1972 1974 (Mechanic St. ) Prendville Rd. A.D.T. : 2030 2950 n.a. 5420 % change 1960-1974 42% % change 1960-1974 167% Source: Massachusetts D.P.W. Traffic volumes on Route 32 near the West Brookfield and New Braintree town lines do not appear to be as heavy as at the Palmer town line. East of the C.B.D. where Routes 9 and 3 2 follow the same course on Mechanic Street, traffic volumes increase sig- nificantly and, as a result, approach a condition of unstable traffic flow at the curving section of the railroad underpass. Unstable traffic flow conditions continue to exist along the narrow and curving corridor over the Ware river leading to the C.B.D. and congestion occurs during peak hours. West of the C.B.D. , traffic volumes are much lighter along Route 9, especially along Gould Road. Gould Road is a Collector which services the Ware High School and functions also as a by-pass between Route 9 and Route 32. The intersection with Route 9 is poorly located, particularly with respect to sight distance approaching Route 9. As Table 29 indicates, this condition has led to a relatively high frequency of traffic accidents here. East and North bound traffic from Routes 32 and 9 South and West of the C.B.D. is channeled into the C.B.D. where both routes converge at West Table 28 ADT Vehicle Counts, Major Arterials Outside CBD Location 1969-1971 ADT* 1972-1974 ADT* Route 32 South Near Palmer Town line Near Dugan Road West Street Shopping Plaza Vernon Street Route 9-32 Northeast Mechanic Street near Prendville Road Near West Brookfield Town line Near New Braintree Town line Route 9^ West Near Babcock Tavern Road Near Doane Road Near Gould Road 4200 4300 10,000 10,000 2950 2300 3150 3000 4650 4800 10,800 5420 4430 4420 3200 3100 5000 Source: Massachusetts Department of Public Works and T.O.P.I.C.S. Report * Data for any one of three years included, weekly and seasonally adjusted. Table 29 ADT Vehicle Counts and Traffic Accidents Urban Major Arterials Outside the CBD Location ADT 1969-1971* Accidents 1969-1971 Total Vehicle Pedestrian East Main Street 9000 3 3 0 at Fire Station West Street Shopping 10000 7 5 2 Plaza West Main Street 4650 10 10 0 at Gould Road Source: T.O.P.I.C.S. Report *Counts for any one of three years included. 71 Street and West Main Street. The routes then share the same course east of the C.B.D. until they branch off near the West Brookfield town line. Just south of the C.B.D. from the intersection of West Main Street and West Street to the West Street Shopping Plaza, Route 32 carries the heaviest traffic volumes of any of the major arteries outside the C.B.D. Unstable traffic flow with some stoppages exists along this mile and a half stretch much of the time and a forced flow with many stoppages occurs during peak volume times. Several factors have combined to bring about these conditions. First, local work and shopping activity pat- terns are focused on this part of Route 32. Much of the new housing stock in Ware during the last 10-15 years has been built in this vicinity and, as a result, the Principal and Minor Collectors circulate traffic from residential streets onto Route 32. Local shopping activity patterns focus on the West Street Shopping Plaza and the CBD. Work journeys cannot by- pass this congested part of Route 3 2 or the CBD since there is no bridge or connection to the east side of town. Secondly, daily work activity patterns outside Ware tend increasingly to be channeled along Route 32 towards the Springfield Standard Metropolitan Statistical Area (SMSA) . Almost one of every four work destinations are located within the Springfield SMSA, the majority being located in the SMSA outer ring towns of Palmer and Warren (See Table 21 of Economic Base Section) . Finally, the activity patterns of firms supplying goods and services to the town and region result in a heavy use of Route 3 2 by trucks since it is the main connector to the Massachusetts Turnpike. Considering the heavy traffic volume here and the lack of major traffic access controls, it is surprising that more acci- dents do not occur in this vicinity. The worst safety condi- tions along Route 32, in fact, exist along a curve approaching Three Mile Bridge near the Palmer town line, where eight traffic fatalities have been reported in the last few years. Additionally, the design of Route 3 2 south from Ware through Palmer to the 72 Massachusetts Turnpike is inadequate for the traffic conditions that presently exist. There are about 46 curves within ten miles which make the highway design deficient and unsafe. Some of the deficiencies in town-maintained collectors and streets have been, or are presently being remedied. The re- building of Babcock Tavern Road is now partially completed. Plans are now being prepared to rebuild Gould Road according to the T.O.P.I.C.S. proposal. In the future, reconstruction should be planned for the southern part of Osbourne Road and Crescent Street. The Central Business District and In Town Streets A detailed analysis of traffic circulation conditions and design deficiencies within the CBD and the more intensively urbanized surrounding area has been accomplished through the federally funded T.O.P.I.C.S. program and state D.P.W. adminis- tration. The recommendations for correcting safety hazards have been adopted by the town and the reader should refer to the adopted portions of the T.O.P.I.C.S. report for a detailed assessment of the problems. It is not our purpose to re-examine in detail these problems, but, instead, to summarize and inter- pret the traffic circulation conditions and design deficiencies primarily as they relate to the overall circulation system in the town . The worst traffic circulation conditions within the CBD exist at the intersections of the urban collectors with Main Street. ADT vehicle counts for both the collectors and Main Street near their intersections are shown in Table 3 0. The lar- gest traffic volumes occur at the West Street - Main Street in- tersection. Since no traffic lights or other access controls exist anywhere along Main Street, stoppages and forced flow frequently occur along Main Street. The congestion becomes particularly acute during peak work activity (commuting) periods in the evening as Table 3 0 indicates . Traffic volumes are also heavy on South Street, a Minor Arterial, and North Street, an 73 urban collector running through a high density residential area o f town . According to Table 31/ the highest number of traffic acci- dents seems to have occurred at the edge of the CBD at the Church Street - Pleasant Street intersection. The frequency of traffic accidents is almost equally high one block south at the Main Street - Church Street intersection. Traffic flow in the CBD is further aggravated by metered on-street parking spaces which are too short for parking. This encourages double parking on Main Street, which is a frequent cause of not only stoppages, but also accidents since these vehicles restrict visibility at intersections. A municipal lot exists on Pleasant Street just off Bank Street. Although parking is free, the lot has few cars in it much of the time. Less than 100 yards away from the CBD, it is nevertheless apparently too far for people to walk. Two banks operate their own lots off Bank Street and the newly renovated businesses on the corner of Main Street and Bank Street provide parking for their customers behind their businesses. Considering the apparently poor location of the municipal parking lot, there is an inadequate supply of parking spaces within easy access to the CBD. Recommendations Long range plans by the State Department of Public Works to improve the circulation system of state arterials have included two alternative proposals for a by-pass of Route 9 around the CBD of Ware. Both proposals are presently in "inactive" status. One proposal would by-pass the CBD to the north, south, and the other would by-pass the CBD, to the south. The latter alterna- tive would seem to be more appropriate. Presently, the most acute problem in the town arterial circulation system exists along Route 32 south. Design deficiencies and traffic volumes nearing capacity have brought about a low level of traffic service. There is every indication that activity patterns in this area will continue to place large movement demands on Route 32 south. Should the Route 9 by-pass proposals Table 30 ADT Vehicle Counts, Central Business District Location ADT 1969-1971* Intersection 2 4- Hour Peak Hour ADT Volume Volume Ml"! PM Main Street & 16, 900 389 779 West Street 10, 200 346 726 West Main Street 7, 200 143 248 Main Street & 16, 000 472 632 North Street 4, 600 157 194 Main Street & 12, 500 534 616 South Street 6, 900 208 191 Church Street 3, 600 131 134 Pulaski Street 2, 000 Pleasant Street & 2, 200 Church Street 3, 500 * counts for any one of three years included Source: T.O.P.I.C.S. Report Table 31 ADT Vehicle Counts and Traffic Accidents, Central Business District Location ADT 1969-1971* Accidents 1969- 1971 Main Street & 16,900 West Street 10,200 West Main Street 7,200 8 8 0 Main Street & 16,000 North Street 4,600 5 3 2 Main Street & 12,500 South Street 6,900 Church Street 3,600 Pulaski Street 2,000 10 8 2 Pleasant Street & 2,200 Church Street 3,500 11 11 0 * counts for any one of three years included Source: T.O.P.I.C.S. Report 74 prove to be inappropriate for the near future, another alter- native would involve the construction of a by-pass from Route 9 near the Prendville Road, south, paralleling the Penn Central Rail line to join Route 32 somewhere near Three Mile Bridge. There are indications that the longer range highway by-pass proposals will remain inactive since the DPW is urging communities to assess their short-range transportation needs. This may mean that a less costly, piecemeal reconstruction and realignment of portions of major state arteries may be possible and, for the time being, may be the more feasible or realistic approach to the circulation system for the town. A shorter range priority, which the DPW now has under active consideration, is the recon- struction and realignment of Route 3 2 from Ware through Palmer to the turnpike. This project should also include the realign- ment of the approach to Three Mile Bridge. Another short-range priority is for a new Collector road to link Route 3 2 South to the West Warren Road or South Street. This would provide a means of by-passing the more congested parts of town using the existing arterial circulation system. Two different alternative proposals have emerged through the years; the first proposal involves the construction of a bridge across the Ware River. For this, three possible bridge locations have been considered by the Town Bridge Committee: (1) Homecrest Avenue to South Street via Marjorie Street, (2) Robbins Road to West Warren Road, and (3) Malboeuf Road at the site where the old bridge existed. In addition, the T.O.P.I.C.S. study recommended a bridge location that would involve extending Vernon Street across West Street over the Ware River to South Street via Clifford Street. The second major proposal would involve the reconstruc- tion of Bacon Road to link up with the West Warren Road. Of the alternative bridge locations, the one from Homecrest Avenue to Majorie Street presently seems to be the favorite of the Bridge Committee. It has the advantage of probably diverting the largest amount of traffic away from the congested section be- tween the West Street Plaza and Main Street. All of the various 75 alternative bridge locations would undoubtedly result in a higher level of traffic service along Route 32 South. Other un- known factors, which would have to be taken into consideration, include land acquisition costs, construction costs and environ- mental impact. The Bacon Road proposal would involve not only a mile of major reconstruction, but also possibly another mile of new road construction to link directly up with the West Warren Road. Also, it would probably divert the least amount of traffic away from the congestion sections of Route 32. Should a new highway by-pass or some form of a connection between Route 3 2 South and the east side of town be constructed, a reduction in traffic volumes through the C.B.D. would undoubted- ly occur. Estimates of the magnitude of C.B.D. traffic volumes for activities such as shopping or personal business services are haphazard since no origin-destination survey has been made. Nevertheless, observations by several local Main Street merchants tend to indicate that about half (50%) of the traffic volume approaching the CBD during peak shopping hours have the CBD as destinations and this probably declines to about 20 percent during peak commuting or work activity times. A national study indicates that for communities about the population size of Ware, about 25 percent of the traffic approaching the communities has the CBD as destinations, and, further, that about 4 2 percent of the approaching traffic has someplace within the community as destinations. Assuming that about half (50%) of the through traffic approaching the CBD now could be diverted to the by-pass route to or from Route 32 South, the reduction in traffic volume converging on the CBD could be as much as 2 0 percent approaching from Route 32 South (about 1650 vehicles per day) and as much as one- third (33%) appraoching the CBD from Church Street and East Main Street (about 2000 vehicles per day) . Along Main Street the reduction in traffic volume would vary from 22 percent to 30 percent considering the present ADT counts (3300 to 4600 vehicles per day) . Just what the economic impact might be of a reduction in traffic volume of this magnitude on the vitality of the CBD is 76 difficult to forecast. Interviews with eight Main Street mer- chants chosen at random revealed almost evenly divided opinions as to whether a by-pass would beneficially or adversely affect their businesses. As shown on Table 32, there seems to be little correlation between the nature of the business, the frequency of need or cost of purchase, and the responses. Those who in- dicated that their business might benefit from a by-pass generally expressed the opinion that the reduction in traffic volume would reduce congestion, thereby making the CBD more accessible to shoppers. This, it should be noted, is one of the primary objec- tives of transportation planning. Other short-range road and highway priorities are the re- construction of Route 9 between Ware and West Brookfield where the highway is narrow and winding, and also the reconstruction of Route 9 between Quabbin Park Cemetary and Belchertown where the highway is narrow and banked incorrectly. Rail Service Ware is presently served by the Penn Central and Boston and Maine railroads. Both lines provide freight service to the town and use the same line. The line runs from Palmer, north through Ware to Barre. Presently, only the Ludlow Cor- poration, manufacturers of finished paper products, uses the freight service regularly. Ware Metals, scrap metal and paper service, also uses the freight service periodically. In the past, other companies having access to Boston and Maine sidings have used the freight service. The decline in the use of rail freight service has generally been the result of the unreliable and inefficient service provided by the rail lines. The continuation of rail freight service to Ware is pre- sently tenuous. According to the United States Rail Association Preliminary System Plan, the volume of rail freight in Ware is of a marginal magnitude necessary to sustain continued rail ser- vice. It appears that since only the Ludlow paper plant con- sistently receives rail service, most of the freight is one way coming into Ware and freight cars generally leave Ware empty. Table 32 Summary of Responses to Central Business District By-Pass Proposals by C.B.D. Merchants Type of Business Help Business Response Hurt Business No Effect on Business Undecided Florist Men's Clothing Electronics Liquor Insurance Agency Office Supply Pharmacy : -Prescription Drugs -Fountain Variety Store TOTALS X X 4 X X X X Source: Interview by author 77 Also, since the closing of the paper plant in Wheelwright and of Barre Wool, rail freight service does not exist north of Ware. Should Congress approve the Preliminary System Plan, the state of Massachusetts could subsidize these unprofitable lines or the lines could be taken over and operated privately. Subsi- dies from the state would go to communities that could demonstrate adverse economic consequences to the community as the result of rail abandonment. In Ware, a Transportation Study Group, under the leadership of John Conn, is presently attempting to assess the impact of the proposed abandonment. Ware is also represen- ted on the Joint Transportation Committee, coordinated by the Lower Pioneer Valley Regional Planning Commission. In addition, the Ware River Valley Rail Association has been organized. Con- sisting of representatives from Palmer, Ware, Hardwick and Barre, this group is attempting to assess the impact of the proposed abandonment on these communities along the rail line. Presently, the only industry that would be affected by abandonment appears to be the Ludlow corporation which, if forced to switch to motor freight service, would incur significantly higher freight costs. Other potentially consistent rail freight users exist, who could benefit from the comparatively low rail freight rates, if the efficiency and reliability of rail freight service could be improved significantly. They include Ware Me- tals, Ware Coupling and Nipple, Goldstein and Gurwitz (farm ma- chinery sales) and possibly Ware Lumber Company. One necessary requirement for improved rail service would be to upgrade the presently poor condition of the rail bed from Bondsville to Ware so that the train speed limit could be increased from the present 5 to 10 mile per hour restriction to a normal 3 0 miles per hour. Passenger Transportation Service Presently there is no public mass transit or transportation system serving Ware. Bus service is provided by four private carriers. Only one has daily scheduled service. Although no studies of the need for public transportation service for Ware 78 have been completed to date, isome areas of concern have been expressed by Ware residents. Most importantly, the lack of any regular passenger trans- portation system serving Ware may be contributing to the rela- tively high rate of unemployment in the town. A survey would aid in determining the number of the unemployed who are dis- couraged from accepting employemnt outside Ware for lack of transportation to areas of job availability. Presently, approxi- mately half of the resident labor force commute almost exclu- sively by private automobile to places of employment outside Ware, most often to towns west of Ware within the Springfield SMSA. Based on the 197 0 census and other estimates, about 18 percent of the resident labor force is employed in Belchertown, Amherst and Pelham. The majority commute to employment in Amherst, where an increasingly large number are engaged in service-related employment at the University of Massachusetts. Ware residents who are students at the University could benefit along with those employed there from regular transit service at least to Belchertown where public transportation to Amherst is available. A transportation survey is also essential in assessing the need for bus service within Ware, especially for the elderly who re- gularly require inexpensive transit to and from the center of Ware, Recommendations An examination of the need and feasibility of public mass transit for the region is essential. Springfield is surrounded by 12 communities which comprise the Lower Pioneer Valley Re- gional Transportation Authority. The Authority was created in 1973 pursuant to the enabling legislation. Chapter 1141, Sec- tion 14. Services for the Authority are provided on a contrac- tual basis. Eighty percent of the funding for the purchase of equipment is from federal sources, while the remainder is pro- vided by state and local government. In addition, fifty percent of any running deficit is subsidized by the state. Should stu- dies indicate a significant need for mass transit in Ware, several 79 mass transit options would become available. Options : (1) Ware could join the existing Lower Pioneer Valley Regional Transit Authority. However, for a new community to join and receive maximum federal and state subsidization, it must be contiguous to a community presently a member of the Authority. For Ware to meet this requirement, Palmer or Bel- chertown must join the Authority first. (2) A new regional tran- sit authority could be created involving Ware and other re- gional communities not presently members of the existing transit authority. The governmental processes and technical requirements for the creation of an authority are set forth in the enabling legislation. Chapter 1141, Section 3 and Section 14. One of the most important requirements is the preparation and approval of a Transportation Development Program, a short-range statement of the present status, problems and proposed improvements in the mass transit system. Of importance to Ware is (a) the low level of transit service now provided by private carriers, (b) the location and identification of non-drivers, and other potential mass transit users who could benefit from both intra-community and regional transit service. (3) A third option is the expansion of the regional transit service to Ware. This service is now provided by private carriers to regional centers identified as in need of mass transit service. The feasibility of this alter- native may be restricted somewhat by state franchise licensing regulations. There still remains the question of the profita- bility of regular private carrier service, considering the rela- tive isolation of Ware and level of service that might be required to meet transit needs. Ware's most viable option would probably be to encourage Palmer and/or Belchertown to join the Lower Pioneer Valley Re- gional Transit Authority and then apply for membership in the au- thority. The establishment of another transit authority close to the existing transit authority would probably, in the long run, prove inefficient and inappropriate. With the possibility that increased industrial development and expansion will occur within the Springfield area and within commuting distance of 80 Ware/ the work activity patterns of non-drivers will focus on communities in the existing transit authority. The best solution is to expand the existing boundaries of the transit authority to include such communities as Ware, Palmer and Belchertown if adequate transit service could be provided. Airports Two small airports serve the Ware region. At West Brook- field/ airport facilities are available with a 2000 foot run- way, and at Palmer with a 2200 foot turf runway. A major public takeover of the Palmer metropolitan airport has been proposed. This priority has been reflected in a recently released Airport Systems Plan. Although the details remain unclear at this time, the proposal includes a modernization of the airport using federal grants. The public takeover would probably directly involve Ware and Belchertown should these communities desire to continue to be served by the airport I I I I fiscal analysis Revenue 81 Expenditures 83 Tax Base and Tax Rate 8 5 Bonded Indebtedness 87 Conclusions and Recommendations ... 88 FISCAL ANALYSIS The following report presents a fiscal analysis of the Town of Ware. A fiscal analysis is a prerequisite for programs implementing physical development objectives. The pattern, character and timing of physical development is achieved through a capital improvements program. Capital improvements programming involves the scheduling of public fiscal improvements for a community over a certain period of time, along with a considera- tion of the priorities and financial capabilities of the commu- nity. The financial capabilities of a community, like those of any household, are the result of the interaction between revenue and expenditure. The revenue potential of a community is de- termined primarily by its tax-base, i.e. the total market valu- ation of property. Ware, like most communities and some house- holds, sometimes spends more than it earns. When this happens, it must borrow money through the issuing of municipal bonds. Therefore, the trends in (1) revenue and expenditures, (2) the tax base and tax rate, and (3) bonded indebtedness are the in- teracting financial elements which will be systematically exa- mined and then considered as the background for a capital im- provements program. Revenue Tables 33 and 34 show the local sources of revenue for the towfi for various years from 1960 through fiscal 1973. Tables 35 and 36 show receipts from all sources of revenue for the same period. A more detailed categorical examination is difficult because of changes in accounting procedures in town reports dur- ing the period of time included. Ware's revenue requirements grew at a generally increasing rate from 1960 to 1972. As Figure 5 indicates, the annual rate Table 34 Major Local Sources of Revenue: Ware Percent Distribution Revenue Source 1960 1965 1970 1971 1972 1973 * Property Tax 42% 53% 65% 60% 67% 59% Motor Vehicle Tax 7 . 0 8. 7 7 . 5 6 . 5 6 . 1 5 . 3 Department Receipts 24 . 0 25. 6 23 . 6 30 . 1 29 . 7 28 . 6 Available Funds 26. 8 12 . 5 3 . 7 10. 3 3 . 4 7 . 0 Total 100 100 100 100 100 100 * Fiscal Year : 18 month period (January 1, 1973 - July 1, 1974) Source: Town Reports for years listed. (U u w in +J cn Cu •H (U Pi 03 in o CO 00 CTi CN O 00 00 n m o o (Ti in in 00 o CTi CN rH c o •rH -p (0 X (0 Eh o 00 rH in O ro r-l o vD in CN in cn CM CN (0 4J 04 ro CN •H 00 ro 0) 00 O 0) r-l O in Qi CM o Ui 0 (U C (d in CTi CN H (N «X) ro H n rH CO 0) o V£) O in CTi in •H in S rH rH ro ■d >. c rH (0 >1 (0 CN rH rH 4-> ro rH ft in CN CN 1^ •H OJ o >X) 1 O ro in cu ro ro CN ro Pi rH ro cn rH rH n3 -P rH cu • CO CTi O B ro o >1 ■P CU o in o !h ^ vo ft o O H ^ ro cy> ■H g CO Sh CU CU CTi CO (U cn >1 ,—1 ft )H (N CO ro u >X) CN O 0 CN nH rH •p g IW c •H CN ro o (U tn Pi ■P u 00 CU 0 rH ■p ft nJ cu (0 ■P Pi 10 (0 m Table 36 Percentage Annual Receipts from Sources Indicated: Ware Revenue Source 1960 1965 1970 1971 1972 1973 * Taxation 23% 38% 48% 44% 45% 48% State & Federal Grants 8 . 5 15 . 8 11 . 2 13.2 18.9 22 . 3 Other @ 68. 6 46 . 6 40 . 9 42 . 3 36 . 3 29 . 7 Total 100 100 100 100 100 100 * Fiscal Year: 18 month period (January 1, 1973 - July 1, 1974) @ Includes: State Reimbursement, Departmental Receipts and Miscella- neous Receipts Source: Town Reports for years indicated. Figure 5 CHANGES IN FISCAL ELEMENTS OF WARE Annual Percent Change Dwelling Units ■» Assessed Valuation ^ Inflation Index Revenue Requirements 1960- 65 1965- 70 1970- 71 1971- 72 1972- 73 1973- 74 Sources: Town Reports for Years Indicated, Records of Town Clerk and Tax Assessor, U.S. Dept. of Labor: Consumer Price Index 82 of increase reached a peak between 1970 and 1971 when the in- crement in revenue requirements amounted to approximately $357,000 or about 15 percent. From 1971 to 1973 the annual rate of increase dropped, remaining, nevertheless, between 200,000 and 300,000 dollars per year. Requirements for higher revenues are generally the result of normal inflation and the increasing demand for municipal services caused by population growth. Since, as shown in Figure 5, revenue requirements increased at a faster rate than infla- tion, housing stock (new dwelling units) and the tax base (assessed valuation) , the conclusion appears to be that higher revenues are also the result of an increasing demand for im- provements in town services. Major capital improvements in- creased significantly between 1970 and 1973, and, although this will be discussed in more detail subsequently, they included expenditures for sewage and water system construction and a new elementary school. The trend in the distribution of local revenue sources from 1960 to fiscal 1973 is shown in Figure 6 on a proportional basis. It can be observed from Figure 6 that owners of real and personal property have had to bear an increasing portion of the local burden of growing revenue needs. The tendency toward grossly underestimating " revenue , evident during the early 1960's, has tended to decline in the 1970' s. The result has been de- creasing amounts of available funds or "free cash" which would be used to (1) offset the amount borrowed for small capital outlays or (2) keep tax rate increases small. Departmental revenue and miscellaneous revenues have about kept pace with the increase in revenue needs. As a consequence, this category has changed little proportionately. Contributions from state and federal grants, separate from state reimbursements, have increased substantially since 1970 as Figure 7 shows. Since 1970 this category has tripled, while revenue requirements have increased by only about 30 percent. The effect of the revenue sharing program can be observed in the budgets of 1972 and fiscal 1973. Federal and state grants Figure 6 CHANGES IN DISTRIBUTION OF LOCAL REVENUE SOURCES WARE 20 10 I' (Departmen t RoceiDts ) ::(State Reimbursements) ■ >vv..v.vC#iscellaneous ) 20 10 1960 1965 1970 1971 1972 1973 Source: Town Report for Years Indicated Figure 7 CHANGES IN DISTRIBUTION OF ANNUAL RECEIPTS WARE percent 100 90 80 70 60 0 OTHER RECEIPTS (Departmental ) (State Reimbursements) (Miscellaneous) ,i percent tLOO -90 80 70 0 1960 1965 1970 1971 Source: Town Reports for Years Indicated 1972 1973 83 increased from 13.2 percent of the total revenue in 1971, to 18.9 percent in 1972, to 22.3 percent of total revenue in fiscal 1973. This increase in federal and state sources of revenue, however, had little effect on the relative contribution of taxa- tion as a source of revenue. The taxation category increased almost steadily, going from 23 percent of total revenue in 1960 to 4 8 percent of toal revenue in 1973. The contribution of departmental revenue, state reimbursements, and miscellaneous revenue declined from being 50 percent of total revenue in 1970 to 30 percent of toal revenue in 1973. Expenditures Trends in expenditures in the town budgets between 196 8 and fiscal 1974 are presented in Tables 37 and 38 . Expenditures have generally gone up, although the rate of increase has been somewhat erratic. The largest percentage increase in expendi- tures occurred between the budgets of 1969 and 1970. The annual increase of about $200,000 at this time is not matched again until the differences between the 1972 and 1973 budgets and the 1973 and fiscal 1974 budgets are observed. Between 197 0 and fiscal 1974 the budget increased by 45 percent, or $837,739. However, when the effect of inflation is taken into considera- tion, the budget increases between 1970 and fiscal 1974 amount to only 7 percent as Table 39 indicates. In fact, in terms of 1968 constant dollars, the largest budget increases occurred between the 1968 and 1970 budgets, while the rate of increase in the budgets between 1970 and 1974 actually declined. It is interesting to note that the increase in the budget between 1973 and fiscal 1974 was not enough to compensate for double digit inflation during that time. As Figure 8 indicates, the largest category of expenditures in the budget is schools, accounting for 63.2 percent of the budget in fiscal 1974. Debt and Interest was the second highest category of expenditures followed by Public Safety. Within this latter category, the largest items of expenditures were for the Police and Fire Departments. Table 38 Percent Distribution of Budget Expenditures: Ware Budget Category 1968 1969 1970 1971 1972 1973* 1974 General Government 4.8 4.3 4.3 4.3 4.0 3.6 4.0 Public Safety 12.0 11.3 11.4 11.2 12.0 5.9 7.1 Health and Sanitation 1 2 1 7 1 6 1 . 7 1 7 Highways 10.9 8.6 7.5 7.5 8.9 7.2 4.8 Charities and Benefits 5. 2 5 . 7 4 . 6 5 . 1 4.9 4. 4 4. 2 Schools 55.4 58.2 61.6 60.5 57.4 61.4 63.2 Library 1.3 1.1 1.0 1.1 1.0 1.0 1.1 Parks and Recreation 1.2 1.1 1.1 1.0 1.1 1.0 1.0 Cemetary 1.4 1.1 1.0 1.0 1.0 1.0 1.0 Insurance 1.8 2.7 2.6 3.1 3.0 3.3 3.2 Unclassified 0.2 0.2 0.2 0.2 0.2 0.3 0.4 Debt and Interest 4.8 4.0 3.8 3.2 4.9 9.9 8.5 Total 100.0 100.0 100.0 100.0 100.0 100.0 100.0 * 18 month Fiscal Year: (January 1, 1973 - July 1, 1974) Source: Town Clerk Budget Worksheets, Years Indicated Figure 8 CHANGES IN DISTRIBUTION OF BUDGET EXPENDITURES WARE percent percen 1968 1969 1970 1971 1972 1973 1974 Source: Budget Worksheets of Town Clerk for Years Indicated 84 Schools From 1968 to fiscal 1974 the largest percentage increase within the overall budget was for schools. School expenditures increased 49 percent during that period of time. Schools com- prised 51 percent of the overall budget in 1968 and 63.2 percent of the overall budget in fiscal 1974. Yet, this substantial expenditure of community resources must be put into perspective. School expenditures form a substantial portion of the overall budget in most communities. In neighboring Palmer, for example, school costs comprised 57.8 percent of their budget in 1971, 60.2 percent in 1972 and 57.3 percent in 1973. In Ware, even with a substantial portion of the overall budget going to schools, the per pupil expenditure for schools is relatively low as Table 40 indicates . Public Safety The proportion of the overall budget expended for public safety between 1968 and fiscal 1974 has been relatively stable except for the past two budgets. For fiscal 1973 and fiscal 1974, almost all of the revenue sharing funds were allocated to the Police Department thereby causing a decline in its share of the town budget. When revenue sharing funds are included as expenditures in the Police Department budget, the Public Safety category is inflated to become 9.9 percent of the overall bud- get for fiscal 1973 and 10.2 percent of the overall budget for fiscal 1974. Other Departments The share of the overall budget for most other town depart- ments has remained relatively stable, although the highway de- partment budget declined significantly between fiscal 1973 and fiscal 1974. The 26 percent decline in expenditures for that period was due primarily to increased state aid. Water and Sewer Department expenditures are not a part of the general town budget. A major factor in rising costs is salaries and wages. Seventy- four percent of the school budget and 81.6 percent of Table 40 School Expenditures per Pupil for Selected Communities Community Median Family Income (1970) Per Pupil Expenditures (1971-72) Belchertown Longmeadow Monson Palmer Ware Warren Wilbraham $ 7,943 19,123 10,005 9,052 9,802 9,968 13,462 $ 816 1,091 853 779 763 854 1,047 Source: Town and City Monographs Mass. Dept. of Commerce and Development 85 the Public Safety budget is spent on these two items. In- creases in salary and wage rates will therefore affect total expenditures considerably. Until the advent of revenue sharing, salaries and wages had generally not been subject to subsidi- zation by state and federal programs. Although Ware used a considerable portion of its revenue sharing funds for police salaries, it is unlikely that federal funds can keep pace with salary increases. Local taxes will probably make up the dif- ference . Tax Base and Tax Rate Total property tax revenues are determined by three ele- ments : (1) The "True" or market value of property: the tax base. (2) The Assessment Ratio: the assessor's valuation divided by the market value. (3) The tax rate set by the town's revenue needs. The computational procedure for the determination of total prop- erty tax receipts is shown below: Total Assessed Valuation = Market Value x Assessment Ratio Total Property Tax Receipts = Total Assessed Valuation x Tax Rate The Assessment Ratio for Ware has remained at about 3 3 percent since the last revaluation during 1957 and 1958. As Table 41 indicates , the assessed valuation has been rising stead- ily since 1960. Until fiscal 1973 the annual increase was be- tween 2 percent and 3 percent. Increments in assessed valuation are the direct consequence of growth in housing stock, in the economic base and inflation of market values. In Ware, according to Figure 5 , the rate of increase in housing stock (new dwell- ing units) has been on the decline since 1971. Between 1972 and 1973 housing stock increased 5.2 percent*, while assessed valuation increased only 2.9 percent. Nationally, inflation alone accounted for an increase of 9.6 percent in market values. The contribution of inflation is perhaps more evident in ex- plaining the substantial increase in assessed valuation between extrapolated from calendar year to fiscal year 86 1973 and 1974. Housing stock increased only 1.6 percent*, while assessed valuation increased 4.9 percent*. Additionally, the rise in valuation has not kept pace with the increase in revenue requirements. Consequently, the tax rate has been forced steadily upward to compensate for this disparity. A recent decision of the Massachusetts Supreme Court has mandated that all communities must comply with the 1961 law requiring all property to be assessed at full and fair cash value, i.e. 100% of market value. Ware, like many communities, assesses property at less than full and fair cash value. The Assessment Ratio for Ware has remained at about 33 percent since the last revaluation during 1957 and 1958. Table 42 shows the actual and full tax value rates for selected communities with- in the region. Although Ware's actual tax rate is among the highest in the region, its true (full value) tax rate is among the lowest. It is the tax base (market value of property) of a commu- nity that determines its revenue potential. A comparison of the equalized valuation on a per capita basis for Ware and sev- eral communities in the region is shown in Table 11. The per capita equalized valuation for Palmer is significantly higher than Ware and other towns considering median family income. Since manufacturing and wholesale-retail trade are important sectors of the economic base in both towns, properties which serve economic functions should make up a significant share of each town's tax base. This appears to be true for Palmer, but seems to be quite the contrary for Ware. Residential prop- erty in Ware does not appear to carry its share of the tax bur- den. If the town would comply with a recent (1973) state re- gulation (Chapter 761) to classify taxable property according to its use, the relative contribution of each segment of the tax base would be known with some certainty. *extrapolated from calendar year to fiscal year •3 <3> 0) CO (0 4-1 O +J C c 0) o O (0 « U m to rH O CM >^ rH rH O U CTl rH O 13 o u (Tl rH rH O en u IT) to V£) rH CTl rH I o O M vo to (y\ rH H rH O O in o in o 00 in CM o 00 iX) o o o 00 CM m o rH n in 00 m o (N CN o o CTl CO (N c o ■rl to rH 73 (0 OJ > PQ 0) to EH (0 e o in n o in o 01 tn 0) to cn < cn o 00 n CM 00 VD 00 ^X) VD O CTl CM rH 00 in in o r- o in CM o cr> CN CO CN CTl O VD EH 0) u > i fO C to 1^ o -H M 0) ■p o CM rH CO U O u 0) o CO cn 0) CO to 0) u o CO Table 42 Actual and Full Value Tax Rates for Selected Communities, 1971 Community Actual Tax Rate ($) Assessment Ratio (%) ruXi. Va.J.U.6 Tax Rate ($) Belcher town 48.00 99.5 45.87 Brimf ield 63.00 67 42.25 Palmer 153.00 22 36.12 Ware 120.00 33 39.74 Warren 52.40 95 49.64 West Brookfield 35.00 98 34.30 Source: Palmer Master Plan (1974) (Quoted in Mass. Teachers Association Research Bulletin No. 712-19 and Worcester Area Chamber of Commerce, Econ. Research Statistical Compilation) Table 43 Per Capita Equalized Valuation and Median Family Income for Selected Communities Community Median Family Income (1970) Per Capita Equalized Valuation (1971) Belcher town $ 7,943 $ 3,454 Brimf ield n. a. 4,764 Palmer 9,052 6,214 Ware 9,968 4,761 Warren 9,802 4,587 West Brookfield 10,116 200 Source: Town and City Monographs, Mass. Dept. of Commerce and Development 87 Bonded Indebtedness Major capital expenditures for a community normally entail deficit spending through borrowing, i.e. the issuing of muni- cipal bonds. In Ware this form of financing was not used be- fore 1960. Since then Ware's borrowing practices have generally been conservative, normally requiring no more than 5 percent of the budget expenditures. Recently, however, the proportion of budget expenditures devoted to the payment of debt and interest increased from 3.2 percent of the budget in 1971 to 9-9 percent of the budget for 1973. This recent increase, which can be ob- served in Table 6, was the result of a $1,777,000 bond issue in 1972 for a new elementary school. As Table 44 indicates, the per capita net debt for Ware in 1972 was $74. Compared to other communities in the region, most with smaller populations than Ware, this amount seems to be average. But, since per capita net debt for the 60 towns in Massachusetts with populations from 5000-7000 was $219, the debt service for Ware seems small by comparison. In the past the town has been able to avoid some bonded indebtedness it might otherwise have incurred by: (1) using available funds or free cash for some capital expenditures; and (2) using money from various departmental "funds" for others. For example, the Highway Machinery Fund is maintained through state aid programs. Money allocated to the town for the leasing of equipment on various state aided projects is transferred to the Machinery Fund if town machinery is used on the project. The town also maintains a Stabilization Fund. This is a special account that was established to provide for capital expenditures. This fund is held in investments until needed. Also, in 1973 the town voted to establish a Reserve Fund which, by law, can be used only to cover extraordinary or unforeseen expenditures. On the other hand, the town has used money from some "funds" to amortize (pay back) short term loans. The recent loan for the new ambulance is being amortized by receipts from the Ambu- lance Fund. Also, water and sewer system improvements financed by loans are amortized by using Water Department receipts. 88 The borrowing capacity, or debt limit, for Ware for 1974 was $2,100,000. This is equal to 5 percent of the equalized valuation, which was $42,000,000 for that year. The net debt capacity is determined by subtracting the annual principal due on loans "inside" the debt limit. Since in 1974, only the $1250 due for the new ambulance was "inside" the debt limit, the net debt capacity was $2,098,750. Except for the new ambulance, the remaining outstanding loans, or bonded debt service, shown in Table 44 are all "outside" the debt limit. Table 45 shows that by 1977, four of the present seven (1974) outstanding loans will be retired. The annual expenditure for principal and interest for fiscal 1974 was $277,996 and the outstanding debt service was $2,493,950. By fiscal 1977, assu- ming no additional bonded debt, the annual expenditure will be reduced to $219,909, and the debt service will decline to $1,659,800. The debt service would decline again in 1984 and by 1990 the town would be debt free. The effect of any new capital expenditures financed by bonded debt will, of course, change this trend. The nature and amount of new capital expenditures that are needed will be discussed in the next section of this report. Conclusions and Recommendations Revenue requirements have steadily increased over the years, becoming a problem since 1972. Since the growth in assessed valuation has not kept pace with revenue requirements, and with inflation, the inevitable consequence has been a rising tax rate. According to statute, and now court decree, the town must now reassess property at full and fair cash value, i.e. 100 percent of market value, which will lower the tax rate. While it may seem to make no difference whether the town uses a 3 3 percent assessment ratio and a $124 tax rate or a 100 percent assessment ratio and a $37.50 tax rate, it is almost certain that an assess- ment ratio of 33 percent on property reassessed in 1957 and 1958 and on property assessed since then has been unequally applied. There is evidence that assessment uniformity deteriorates as the Table 44 Per Capita Net Debt* for Selected Communities, 1972 Community Net Debt $ Net Debt Per Capita $ 1970 Population Belchertown $562,000 95 5936 Brimf ield 710,000 372 1907 Hardwick 21,500 9 2379 Palmer 477,600 41 11680 Ware 606,000 74 8187 Warren 292,000 80 3633 W. Brookfield None None 2653 Source: Town and City Monographs Mass. Dept. of Commerce and Development * Total Balance of Bonded Debt Outstanding at Beginning of Year iH f-i >i .H -P Xi (D IT) Q ■>* 'O Q) QJ <-i •CJ X! 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