Application Review Committee Meeting on Northgate Mall TIF - October 20, 2025
Application Review Committee Meeting on Northgate Mall TIF - October 20, 2025
On October 20, 2025, at 9:31 AM, the Chattanooga Application Review Committee convened to review a tax increment financing (TIF) application for infrastructure improvements at the Northgate Mall property. Committee members introduced themselves, including Charles Wood (CEO, Chattanooga Area Chamber of Commerce), David Hudson, Christy Manorino, Greg Tyler, Susan Gilmore, Jim Floyd, Daisy Madison, and John Michel (CBL Properties). City staff and legal counsel also participated.
Consent Calendar
- No consent calendar items were listed.
Public Comments & Testimony
- No public comments were made during the meeting.
Discussion Items
-
TIF Education Session: Winston Brooks, Director of Economic Development, explained the basics of tax increment financing. He described how the base property tax is retained by the city, and the increment (increase in value after development) can be used to finance infrastructure. The developer continues to pay property taxes, and the city reimburses the developer for eligible costs.
-
Project Presentation by John Michel (CBL Properties): Michel presented the Northgate Mall site plan, noting 14 separate properties on the campus. He explained that enclosed malls are declining nationally, and Northgate is at risk of becoming a "zombie mall." The mall's private water, sewer, and stormwater lines were installed in the early 1970s before Hickson was incorporated into Chattanooga. These lines are aging (55+ years) and insufficient for redevelopment. The proposed TIF would fund approximately $9 million in utility upgrades, which would then be dedicated to the city and Hickson Utility District. Michel emphasized that without this investment, the mall tax base has eroded from $1.1 million to $175,000, and further decline is likely. A phase one concept includes a three-story multifamily apartment project near the former JCPenney and movie theater, with a potential relocated library. Mixed-use redevelopment (apartments, hospitality, retail, office) is envisioned for the long term.
-
Committee Questions and Discussion:
- Greg Tyler asked about the ownership of utilities. Michel clarified that private lines serve all properties, and CBL bears maintenance costs without collecting fees from other tenants.
- Daisy Madison questioned the "but-for" test: whether the project could proceed without public subsidy. Winston Brooks noted that a third-party review (draft received) showed a negative return without subsidies, supporting the need for TIF. Madison also asked about the fairness to other developers; staff explained that the state legislature recently allowed standalone infrastructure TIFs, and this project aligns with adopted regional plans.
- David Hudson asked about the comparison to Hamilton Place, where utilities were public. Michel confirmed that the situation is a matter of timing—Northgate was built before annexation.
- Susan Gilmore inquired about documented infrastructure failures. Dan Cannon (civil engineer) confirmed frequent water line breaks, sometimes leaving businesses without water for hours or days.
- Jim Floyd raised concerns about the waivers. Staff explained that three waivers were requested: (1) maximum percentage of total cost (infrastructure-only project, no vertical component), (2) allocation of incremental tax revenues (requested 20 years at 60% increment instead of the policy's 10 years at 75% or 20 years at 60%—the city approved 20 years at 60%), and (3) the third-party review (the city did not waive this, requiring the but-for analysis).
-
Compliance Review: Betsy Knott (attorney for the city) confirmed that the application and economic impact plan meet city TIF policy and the state IDB Act. The process has included proper notices and meetings.
Key Outcomes
- Motion 1: To advise city council that the documents are compliant with the IDB Act and the city's TIF policy and are qualified to be submitted for approval. Motion passed unanimously (no opposition).
- Motion 2: To set a public hearing date before the Industrial Development Board (IDB) on November 3, 2025, during the regular IDB meeting. Motion passed unanimously.
- The committee did not vote on the waivers themselves, as those were previously approved by city council.
- The meeting adjourned around 10:30 AM.
Meeting Transcript
All the meeting to order is 9.31, if that's helpful for the recorder there. And excited to have everybody here. It seems like a pretty interesting project for the application review committee for the city. So with that, maybe we'll start with introductions if that's okay. Just so folks kind of, I think know everyone around the table what their what their background is and their role. So my name is Charles Wood. I'm the CEO for the Chattanooga Area Chamber of Commerce, and before that spent um about tenure serving as vice president of economic development there. So happy to see another pretty interesting project come before us. Audio, you want to I am on the IDB since 2023. Um have my MBA from the University of Tennessee Chattanooga, undergrad there as well, um representing district six in the Tyler area. I'm just the court reporter Laurie Robertson. Just I'm David Hudson uh architect and here in town, I found my own firm back in 1985 R Tech Design Group, and last October we merged with Tinker Maw, so I'm no longer an owner, I'm just an employee, but still an architect. Christy Manorino, I am the executive director of local services for signal centers. Uh a little background, uh quite a bit of um time working with the city, uh growing the arts um a number of years ago. And uh currently our organization has is statewide, but it has offices all over town, including the Eastgate area, which is gonna be interesting to just hear what could possibly be happening on the Northgate side. My name is Greg Tyler. Uh I am uh I'm in the advertising business, but not really here in Chattanooga in New York and California. But I am president of uh Frenza Hickson, president of the uh uh Valley Brook uh HOA, president of the Hickson Coin's Club and a lot of things in Hickson. So uh Jeff asked me to participate in this, and I'm glad to be here. I'm Susan Gilmore, I'm a realtor with real estate partners Chattanooga, and I also serve on the Board of Zoding Appeals, proudly representing District 7. Uh my name's Jim Floyd. Um I serve on the IDB Rivnadia, and um I guess my history is I worked with an engineering firm that uh manage numerous infrastructure projects for the state and the city around the town and currently own the home business. So I'm Daisy Madison. I am a retired CFO for the city of Chattanooga for 29 years, and I um in Joy 9 and um retired. I I I say I'm no longer paid, but I still love working for the city and on behalf of the city. My name is John Michelle. I'm a developer for CBL properties. I've worked on developing and redeveloping malls for almost 30 years, and I'm excited to be here to explain a little bit about what we're hoping to partner with the city on. I'm also here just to let you know with colleagues, um Stacey Keating, David Newhoff, Kurt Hammond Tree of CBL, Dan Cannon is our civil engineer with Miller McCoy locally, and Mark Smith is representing us um on the legal side. Great. Thanks so much. Um with that, I think um it's okay. We'll go ahead and turn it over for the let me just uh introduce the folks on the screen. Oh, thank you. Sorry. Go ahead now, Betsy. Hi, um good morning everyone. I'm Betsy Knott. I'm an attorney with Bass Barry and Sims. I'm here with my colleague Mark Mavenhoff, I believe he's on the phone number that called in. We represent the city 90. Thanks so much. Um with that, we'll go ahead and move to kind of a uh general, I think introductory and educational session on kind of what is a TIFF. Um, and that'll be Winston that'll cover that. So thanks so much. Thank you, uh meeting. Well, uh it's lucky yeah. Let me see if I can't just pull up a document real quick here. Um we started in earnest. Hopefully this won't take too long.
openpublica.com