Mill Preservation in the Blackstone River Valley

This document describes a project which evaluated industrial mills along the Blackstone River in Rhode Island, built between 1793 and 1910, in order to prioritize their potential for renovation/ reuse. Scores of textile mills built before 1910 still exist in the Blackstone River Valley. Some have been retro-fitted for contemporary use. Many are vacant and not maintained. Structures were evaluated based on their historical and cultural significance and the physical condition of the existing structure. Findings also include sections on the problems associated with mill reuse and some common adaptive reuse options. Some of the successful mill-renovation projects may serve as models for future action.

The subject of this project is the reuse potential of selected textile mills along the Blackstone River in Rhode Island. 1

Significance of the Subject
Mill buildings and landscapes from the Industrial Revolution are a less popular element of our regional heritage than historic sites related to the American Revolution. Mills from the colonial period are acknowledged as historically significant, and many, such as the Slater Mill in Pawtucket, Rhode Island, have been restored and protected. This distinction is not always accorded to mills built and used in the late 19th and early 20th centuries.
Many are treated as nothing more than outdated buildings.
When their users leave they are left to ruin. Several mills in the Blackstone Valley fall into this category.
The overall dimension of many mill structures make them significant to industrial history. Structures built for use in the textile industry often contained single-room floor areas of over 50,000 square feet. 1 When one considers the materials used in construction -stone, brick, and woodthe mills are revealed as technological marvels of 19th century building construction.
The machinery used to harness water power is equally grand and unique. The buildings were engineered to withstand the torque produced by huge water-driven drive belts. Compared to contemporary industrial facilities built of sheet metal and concrete, mills found along the Blackstone reflect the ingenuity and labor intensive nature of late 19th century American industrialization.
Architecturally, the mills reflect the predominant styles of the period. Though not elaborate as a rule, many mills were built in the Victorian era and exhibit those architectural characteristics. Some used a Gothic motif and at least one mill has Romanesque architecture 2 • Significant architecture is one of the criteria used by the National Register of Historic Places to determine inclusion on its listing.
The historic value of the mill era should not be underestimated. The Industrial Revolution was stimulated to a great extent by the innovations of factory manufacturing.
Water power made the river the focal point of production.
The Blackstone River was one of the most heavily worked rivers in the world at its peak in the late 19th century. 3 The impact of industrialization on the society was profound, forever changing worklife in the Valley. housing, and recreation.

Methodoloqy
The task of determining the relative renovation potential of Blackstone Mills involved a number of distinct processes. The entire method is described below to inform the reader of the breadth and limitations of the study.
The project began by defining the study area.
Blackstone Valley National Heritage Corridor is spread over two states from Worcester to Providence. Initial data collection showed that the project needed to be reduced to a manageable size. It was decided that the author would focus only on mills in the Rhode Island section of the corridor.
Since many mills in urban sections of the corridor had little connection to the Blackstone River, only mills which abut the River or used water power were included in the study. Two mill sites on the Branch River, a major tributary, were added to the listing because of their historic value and future economic potential.
An inventory of all mills was then prepared. For the sake of comprehensiveness, a variety of secondary sources were utilized to develop the initial list. The author then visited each site to observe its physical and cultural attributes. Findings were recorded and the mills were organized in descending order by geographic location, north to south.
To prioritize the list, a set of evaluation criteria was developed. The criteria were drawn from those used by other historic preservation efforts, and tailored to the needs of this study. Each mill was given a weighted score according to its relative value. Results of the evaluation process were set in a matrix which was used to determine the mills with the highest renovation/reuse potential. The Blackstone River Valley is rich in history and Early American culture. It is significant to our nation's Industrial Revolution, as well as to regional development.
Beginning with the Slater mills of the early nineteenth century, water powered textile mills were the driving force behind the region's development for more than a century.  Reynolds and Meyers, Eds. 1991. Woonsocket: Sheehan Printing, p.15. 8 undermined its continued prosperity in the region. At the turn of the century, the mills' energy sources, the location of the population, and the New England labor pool no longer favored the Blackstone Valley as an industrial center.
The change from water power to steam was desirable for factory production. The whims of nature, droughts in summer and freezes in winter, would no longer dictate plant outputs. But the use of steam engines removed the advantage the Blackstone mills had enjoyed when water power was the only option. Factories no longer had to be located near a river.
Demographic changes in the United States also conspired against New England textile mills. The population center had been in the Northeast, but was shifting to the South and West. The point of production was no longer close to the market, and this hurt the industry.
The supply of labor remained adequate to meet the demand for mill workers, but workers attempts to raise wages and working conditions made the factories less profitable.
After 1890, a trend toward industrial flight to the South took hold and increased. Plant layouts were radically changed in the 1920's to increase production. A "deskilling" of the labor force combined with a loss of many jobs to automation, made mill work less desirable, and it was seldom the first choice of those who had employment options. To narrow the scope of the project, only mills which have river frontage or used water power as an energy source will be evaluated.

Description of Specific Features
The qualities which make a mill worth saving focus on historic, cultural, and architectural features. A description of the qualities to be used in evaluation in this study are listed below.   of local officials will be considered.
The above criteria were collected for each mill and organized into a table which assigns points to each mill for its rank in each category. Systems that assign numerical scores to surveyed historic resources for the purposes of establishing preservation priorities have been established 11 The criteria for evaluation will be similar to that used by Winsor & Associates for a 1990 Providence Housing Study.
Structures are rated by visual inspection.
A classification of "good" means there are no noticeable improvements needed; "fair" requires minor repairs; "poor" means the structure is in need of major repairs. 13 as viable methodology by the National Historic Register. 12 This will make it possible to show the relative value of each mill.
In some cases, one or more criteria could not be fully utilized due to lack of data. However, the data collection portion of this study recorded 30 mills which matched the criteria. A couple of historic mills in the National Heritage Corridor have been omitted because they were located a considerable distance from the Blackstone River.  A much copied example of the use of a numerical evaluation system is the College Hill Demonstration Study (Providence, 1967).

Inventory of Blackstone Valley Mills
Mills are listed below in the order they appear on the river, proceeding north to south.    Commission. This section of the project will define and explain the criteria used to evaluate mills in the study area. The National Historic Preservation Act defines historic resource as:

* -
any prehistoric or historic district, site, building, structure, or object included in, or eligible for inclusion in the National Register; such term includes artifacts, records, and remains which are related to such a district, site, building, structure, or object. 13 The National Historic Register defines a historic property as: a district, site, building, structure, or object significant in American history, architecture, engineering, archeology, or culture ••• It may be of value to the nation as a whole or important only to the community in which it is located. 14 Buildings are the primary focus of this study. Many of the mill sites contain historic structures such as dams and raceways. It is expected that any preservation efforts on mill buildings will take advantage of other on-site historic 13 National Register Bulletin No. 24. 1985. p.2. 14 National Register Bulletin No. 24. 1985 resources.

Numerical Weiqhtinq
The use of a numerical evaluation system for prioritizing preservation projects is an accepted planning practice. 15 Each category is given a value based on its contribution to the overall renovation potential of the building. A matrix of the evaluation's outcome allows the reader to see the relative value of each mill in each category. Each mill is scored according to the impact of a criterion on a mill's overall potential.
The evaluation classifications can be divided into two basic types: physical characteristics and cultural features. This study has become the model for other planning efforts using a numerical evaluation system. aesthetic value, but receive the lowest score in relation to other construction materials from the mill era.  For the purposes of this report, the mills were ranked by size. While a larger mill may cost more to renovate, the amount of usable floor area can be significantly greater.
Reuse of a single larger mill for retail, commercial, or residential space can have a significant impact on a community's economy. The size category is broken down below.
3 points -large mill 2 points -moderate sized mill 1 point -small mill Building condition -Each mill is categorized by its physical appearance as excellent, good, fair, or poor. The assessment was made by visual inspection of the exterior, and does not reflect interior condition.
Mill described as excellent are those which show evidence of consistent maintenance or were recently renovated. A "good" classification means that the building appears sound with no structural defects. "Fair" signifies that one or two moderate repairs are required, but the building can be renovated fairly easily. A "poor" rating indicates the appearance of major physical inadequacies.
This could mean a disjointed or missing roof, broken windows, crumbling walls, in general a building which will require a major overhaul before reuse occurs. Building 49 condition is classified numerically as follows: No buildings constructed after 1910 are included in this study. This is because factors which caused the decline of Northeast textile mills were already entrenched.
Consequently, few mills were constructed after that date, and the few which were built used concrete as a building material. Ratings for building age are as below. Whatever the current use may be, the highest value for renovation/reuse has been assigned to mills which are currently vacant. Mills with some present use get a medium value. Mills which operate or are rented at full capacity get a low score. This is because any adaptive reuse plan would interfere with existing economic activity.

Given the number of outdated industrial sites in New
England and the current real estate market, a vacant facility can probably be purchased for a moderate price. A mill which is currently in some use is generating revenue for its owner; this could make some owners unwilling to sell or renovate their property.   .µ  20 Lyman Trench was a canal which diverted water from above Woonsocket Falls to power a series of nearby textile mills. Now partially covered over, the Trench consisted of a main spillway paralleling Main Street and a series of right angle power raceways. More information on the history of Lyman Trench can be found in Dr. A. P. Thomas, Woonsocket, Highlights of History. 1800-1976, 1976. Lafayette Mill -Across a narrow street from French Worsted Mill, Lafayette Mill achieved a slightly higher value. This is due primarily to its significance in the immigration of French labor into the New England textile industry.
Lafayette was also the first firm to import French technology, the Roubaix system, for the spinning of worsted yarn. 21 French Worsted Company -French Worsted also got a very low score. The mill appears to be operating as manufacturing, but the product is not known. Architecturally undefined this structure should be continued in its utilitarian function. The building is small, only 78 1 x 44', but is four stories tall. This small building could be converted into office space or another use which utilized its view of the river.
Since Green & Daniels across the river has been renovated, the view from Pawtucket Thread has been improved. It is assumed that these sites have reached their fullest potential for modern reuse.

CHAPTER 5, PROBLEMS ASSOCIATED WITH OLD MILLS
Before old textile mills can be successfully reused, a number of obstacles must be overcome. Obsolete design features put older structures at a market disadvantage.
Most industrial and commercial businesses find it cheaper and easier to build a new building than revamp a discarded structure.
Local government can play an important role in creating incentives or impediments to the reuse of mill resources.
Cooperation of a pro-active local body is necessary to enhance established industrial areas as much as possible.
In the space below, the author described some of the most common problems which undermine the economic viability of old industrial sites.

Infrastructure limitations
Adequate provision of sewer, water, and electricity are essential to industrial users. Technological progress has changed industry's infrastructure requirements. Often, the existing utilities do not meet modern needs.

Biqhvay access
Another problem with old mill sites is that they are seldom have adequate highway access. Transportation routes in the mill era were very different from modern routes.
Simple, direct highway access is a primary consideration of modern business. This is an obstacle in which a town could cooperate with the mill owner to bear the cost of road improvements to facilitate economic development.

Mixinq of uses
Large-scale manufacturing has been moving south at least since the early 1900s. In order to fill vacant industrial space, mill owners try to attract a number of smaller tenants. This is a good strategy, but can lead to problems of adjacent uses being incompatible with each other. Noisy and noxious users must be consolidated away from users who desire a quiet business atmosphere.
Mixing of basic types of uses can create worse problems. Separation of uses is an accepted planning 24 According to Armen Harootian, the roof of the Blackstone Mill will cost $250, ooo to fix.
The repair is needed, but is difficult to justify economically, given the revenues being generated by the space. Valley is federally recognized for its historic significance as well as its cultural artifacts and settings. The National Park Service currently runs historic visits to many of the most significant sites in the corridor. As more NPS personnel are assigned to the Uxbridge office, the staff will provide planning assistance, management, and interpretation of the area.

Grant institutions
Federal and state matching grants for restoration and planning projects are available on an annual basis. To date, nearly $5 million in grants have been awarded statewide.

Contact the Rhode Island Historic Preservation
Commission for more information.

Federal tax incentives
The

Local Action
Historic district zoning -Local historic districts are created by a community to help save historic buildings and to preserve a sense of time and place. Historic districting allows the community to control most e x terior construction, alteration, or repair of structures within the zone. This method helps to preserve entire neighborhoods within a community, and can be developed as an overlay over the existing zoning ordinance.
TDR -Transfer of Development Rights is a useful planning tool which can be applied to historic buildings. The development rights to an historic property can be sent to a receiving property, protecting an historic structure from development which would compromise the historic integrity of the site.
Property tax abatements -A diminution or elimination of property tax reduces the amount of revenue a mill owner must 86 generate to make his property profitable. Tax abatements should be created with a limited time on the relief, and should be commensurate with the mill's historic benefit to the town. Tax abatement has the potential to become a major element of local efforts to preserve mill buildings.
Commercial property which has historic value must be taxed at a lesser rate coupled with assurance from the owner that the property will be adequately maintained. Samoset Mill in Woonsocket has been partially renovated, but maintains its original industrial use. This mill is a good example of the type of renovation which can be performed on an industrial structure which will continue in industrial use.

Infrastructure improvements
Of the twenty-two unrestored mills in the study area, five rated very high for their reuse potential. These structures should be given priority for renovation, as they exhibit a variety of characteristics which make them viable sites. They are, in order of relative value: agencies to bring about economic reuse of textile mills in a manner that is sensitive to their historic value.

Concluding Remarks
This study represents an attempt to qualify the relative values of old textile mills for adaptive reuse.
Reuse often means a different type of use for the structure, including modern industrial uses. It is this researcher's opinion that there is a single best option for reuse of each mill. The evaluation categories used in this study, as well 91 as site-specific location and market factors, should be analyzed to ascertain whether the mill is best used for industrial, commercial, residential, or mixed use.
Determining best use requires further study to better address market factors.
Some mills are relatively easy to assess. Slatersville Mill in North Smithfield, for example, is a great location for mixed use office/ retail, with the possibility of some residential space. Its location in the old mill village is a relatively high traffic area in North Smithfield.
Furthermore, North Smithfield lacks many of the commercial amenities, forcing residents to shop elsewhere.
Slatersville is an ideal location for economic revitalization efforts.
Assessing the reuse potential of o t her mills can be more difficult. Large complexes such as the Ashton mill in Cumberland may not be in a location which could support its adaptive reuse. The needs for new commercial or residential space must be carefully considered before a renovation plan is conceived.
Renovation cost is another key factor in the adaptive reuse formula. This study did not attempt to quantify costs of renovation for obsolete structures. Ideally, the costs 32 If taxes on a mill structure cannot be paid by revenues generated, the property owner may elect to forfeit the property. This would force the municipal government to maintain the structure or demolish it.