Enfield Square Redevelopment: What Enfield Could Have Asked For—And Didn’t

The town approved millions in public support—without tying the deal to walkability, entertainment, or shared spaces residents said they wanted.

Proposed project presented to Town Council last year. The Target store is to the right rear.

Redeveloping Enfield Square is critical. Once our downtown—a hub of activity and identity—the mall is now a shell of its former self. In public comments and a survey of over 1,000 people, residents voiced a clear desire for the redevelopment: not just retail, but gathering places—entertainment venues, a movie theater, live music, family-friendly spaces, and walkability.

Yet on June 2, when Enfield had the most leverage, the Town Council approved a generous package of financial incentives without securing any binding commitments to many of those community goals.

Progress, But Not Vision 

For sure, the town is taking steps to address the problems at Enfield Square. The developer, Woodsonia Acquisitions, will redevelop the site into a mix of housing and commercial space. That is progress. But the evidence is clear: residents want more—something innovative that reclaims the importance Enfield Square once had. Think of The Shops at Evergreen Walk or Blue Back Square. What we're getting doesn't come close.

The Council missed a chance to shape a financial agreement around those priorities.

Millions Committed—With No Public Guarantees

CRCOG Survey of about 1,000 residents.

The Town Council approved June 2 a revised agreement that gives Woodsonia 100% of the Tax Increment Financing revenue up to $19.5 million, followed by 50% of the next $4 million—totaling $23.5 million. This is in addition to a tax abatement that freezes the property's assessed value at $7.5 million for 10 years. The town is also contributing up to $500,000 that seems aimed at helping resolve the Sears' lease. On top of this, the state is contributing $10 million. 

This is a sizable public investment, which may total around $50 millon. (See footnote 1 for explanation)

Opportunity Squandered 

Ironically, this was the town's strongest negotiating position. Officials acknowledged at the council meeting that Woodsonia needed the agreement to secure financing. 

The town appears focused on the long-term tax potential rather than securing specific community amenities.  At the June 2 meeting, Mayor Ken Nelson said that "I want the people, the taxpayers of Enfield, know what the potential possibilities of the increase in new revenue -- taxes -- to the town of Enfield will be." He also believes that the actions the council took at that meeting finalized a major part of the town's effort. "Hopefully, this is the end of the negotiating with them, and all I can say is I think Enfield went above and beyond." 

But the end of negotiations came at exactly the moment when the town had maximum ability to try to secure the theaters, walkable spaces, and entertainment venues residents wanted.

That should have been the peak of negotiations on a project set to shape Enfield for decades.

Enfield's TIF policy allows for performance-based incentives. (See footnote 2) The town could have tied reimbursement -- carrots -- to outcomes, such as a movie theater. 

What the Community Asked For

Woodsonia's plan brings real value: a $250 million investment, 450 housing units, and new commercial space. That's a big step forward, and Woodsonia is an experienced developer.

But the site plan—shown last summer—resembles a conventional strip mall. Walkability upgrades are modest. Green space is decorative. There is no sign of a theater, brewery, or family venue. Commercial goals are vague.

A 2023 Capitol Region Council of Governments (CRCOG) survey of nearly 1,200 people—84% from Enfield—showed as "very desirable:"

• 65%: Outdoor, walkable mall (Evergreen or Blue Back were mentioned in survey comments.)
• 53%: Movie theater 
• 49%: Brewery
• 46%: Indoor golf or bowling
• 42%: Indoor sports complex

Residents also favored New England-style architecture—something rooted in local identity. (See footnote 3) What we're getting looks clean, but generic.

This Isn't about Criticizing the Developer

What Woodsonia has proposed for Enfield appears consistent with other successful projects they've completed. For that matter, the town's incentive package may even align with what has worked elsewhere.

Not all communities tie TIF to specific outcomes. Nonetheless, what deserves more open discussion is the final vision: Will this development become something that residents feel proud of—something that reflects what Enfield truly wants and needs?

There Are Real Gains—But No Guarantees

The town will likely argue that the investment, future tax benefits, and affordable housing constitute ample public benefit. The plan includes 90 affordable units—20% of the total—which is important in a tight housing market, and will create a productive site that pays substantial taxes over time.

But the community, in exchange for this, is being asked to give up the vision of a truly walkable destination with entertainment and community-serving amenities. 

There is no guarantee of—and no requirement for—the kind of public spaces and cultural venues that could make this a genuine town center rather than just another shopping complex.

At the June 2 meeting, I asked the Council, during public comment, to link incentives to public goals. Councilwoman Marie Pyznar responded:

"They are giving me part of my dream," she said. "But we don't own it, so unfortunately, we can't tell them what businesses to put in."

That may be true. But we can ask. And we could have negotiated. 

Other Communities Have

In Joplin, Missouri, a memorandum of understanding (MOU) was used to align development with community goals. (See footnote 4) In Dallas, TIF support required a movie theater. (See footnote 5) 

Enfield could have done the same. Our policy allows it. Woodsonia is capable of delivering uses such as theaters—they have done so in other projects. The town should be helping them do that here, too.

Can the Town Still Influence the Outcome? 

The town likely still has some opportunity to influence the development. Site plan and zoning approvals remain, but the Planning and Zoning Commission is unlikely to reshape a late-stage plan. 

As the project moves forward, the developer may need additional approvals or support from the town. When new opportunities for leverage arise, the town should use them. 

Partnerships only work when both sides have a reason to come to the table.

So why isn't Enfield asking for more? 

We don't know whether council members disagree with the public's vision—or are simply unwilling to risk the deal. Either way, they have made no visible effort to secure the amenities residents want. (See footnote 6) 

Community priorities should guide decisions about public investment. 

Planning for the Unknown 

Yes, some concerns here are speculative. But that's why smart negotiations include community goals. This deal didn't. 

When public funds are invested, public outcomes should be part of the return. 

If this project becomes just another conventional development rather than the vibrant town center residents envisioned, this negotiation will have been a missed opportunity. There is still time for town officials to bring community goals to the forefront—and deliver a project Enfield can be proud of.

Notes: 

1. The Council approved a revised TIF agreement giving Woodsonia 100% of TIF revenue up to $19.5 million, then 50% of the next $4 million—up to $23.5 million total. This is in addition to a tax abatement that freezes the property's assessed value at $7.5 million for 10 years. The town also waived $500,000 in cost sharing. The state is also contributing $10 million to this project. The town retains no TIF revenue until $19.5 million is reimbursed. After that, it receives 50% of any additional increment until the $23.5 million cap is reached. The new agreement replaces the original declining-percentage formula, increasing the developer's benefit and reducing the town's fiscal flexibility. TIF captures tax revenue above a fixed baseline—in this case, $12.85 million from 2018. That new revenue is diverted from the general fund to reimburse the developer. Officials argue that if that not for the development, there would be nothing. True. However, the redirected revenue—over a decade or more—represents a significant public investment that is unavailable for other public needs. Regarding tax benefits: The tax abatement limits tax benefits for 10 years and future tax benefits will depend on the development's assessed value.

Town scenario example for tax abatement. Source: June 2 Town Council meeting

How was the approximately $50 million estimate arrived at?

Credit Enhancement Agreement (TIF Fund Refunds):

• Up to $19.5 million: 100% refund to Woodsonia
• $19.5M to $23.5M: 50% refund to Woodsonia (up to $2M additional)
• Total potential refund: Up to $21.5 million

Tax Assessment Agreement (Abatement Program):

• 1-year delay scenario: $17.4 million over 10 years (2027-2036)
• 2-year delay scenario: $20.6 million over 10 years (2028-2037)

Cost-Sharing Agreement:

• Woodsonia relieved of $500,000 reimbursement obligation

State Incentives:

• $10 million

2. Enfield's TIF policy gives the town ample flexibility and broad discretion to set terms and conditions. "The terms and specific details of each TIF agreement are developed on a case by case basis." https://enfield-ct.gov/DocumentCenter/View/14737/Town-of-Enfield-TIF-Policy-Adopted-June-3-2019

3. The top design approach for residents in the 2023 Capital of Region Council of Governments (CRCOG) survey was New England-style architecture. They wanted something that reinforced the town's historic identity and create something really unique. Another option is to build residential above retail. Source: CRCOG visual preference survey question:

An outdoor commercial mall is a reference to a design style similar to Evergreen.

4. Enfield still has options to shape the future of Enfield Square Mall, even after allocating its Tax Increment Financing (TIF) funds. The town can pursue a non-binding Memorandum of Understanding (MOU) with the developer to set community goals like entertainment, walkability, and green space. While the recent council action locked in the financial terms, it did not address the full potential for community benefit or public input. For example, Joplin, Missouri, used an MOU with a local nonprofit to set clear goals for an Arts & Entertainment Center, showing how such agreements can put community priorities at the heart of a project—regardless of the specific development. Enfield could do the same by convening a Citizen Advisory Committee and seeking real public input. The Joplin example may seem different, but MOUs or something called Community Development Agreements aren't unusual. https://www.joplinmo.org/AgendaCenter/ViewFile/Item/3090?fileID=11238.

5. The Dallas TIF requirement was specific and required a movie theater and entertainment: https://dallascityhall.com/government/Council%20Meeting%20Documents/eco_3_mall-area-redevelopment-tif-and-dallas-midtown-phase-1-development_combined_062016.pdf

6. Enfield should hire an outside economic development consultant and its own designers to help examine other options. While Enfield has an excellent and qualified in-house professional staff, the scope of this project strongly suggest that additional expertise is needed. Independent expertise might help the developer to consider other design options, and find ways to encourage the options Enfield wants. There's a lot to learn from the experience of other communities. Given the scale of the public investment and the complexity of this redevelopment project, outside consultants can provide objective analysis without being influenced by existing relationships or prior commitments, while bringing specialized knowledge that may not exist in-house. Independent experts could help the town negotiate and ensure they're getting maximum value for their substantial investment. The cost of hiring specialized consultants would be a relatively small percentage of the total incentive package but could give us a better project more aligned with the community desires.