HomeMy WebLinkAbout2016-12-00- CPC-rpt (Needs Assessment Report)
Town of Lexington
2016 Community Preservation Plan:
A Needs Assessment
December, 2016
Town of Lexington
Community Preservation Plan
Overview
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The Community Preservation Act
In March of 2006, the residents of Lexingtonvoted to adopt the Community Preservation Act
(CPA), a statute which communities across the Commonwealth may adopt to fund eligible and
worthy projects in four categories: community housing, historic resources, open space and
recreation. In order to fund these expenditures, CPA communities impose a surcharge on their
own property taxes of up to 3%. The CPA statute also created a statewide Community
Preservation Trust Fund as an incentive for communities to adopt the Community Preservation
Act. In addition to the monies raised through the local surcharge, the trust fund provides annual
distributions to participating cities and towns at a certain percentage, commonly referred to as
The CPA also requires each adopting community to establish a Community Preservation
Committee (CPC), tasked with studying the needs, possibilities, and resources of the city or town
regarding community preservation. The Community Preservation Committees are also required
to make recommendations of eligible and worthy projects to their respective legislative bodies.
The CPA statute requires that at least 10% of the CPA funds received in each fiscal year be spent
or reserved for each of the CPA's three main purposes: open space, historic resources, and
community housing. CPA funds may also be also used for the acquisition, creation, preservation
or the restoration/rehabilitation of recreational resources. CPA funds that are not expended in one
remaining 70% of CPA funds received in each fiscal year are available to be appropriated or
discretion. Up to five percent of the CPA funds raised
annually may be used for administrative activities related to the work of the CPC.
The Community Preservation Act, signed into law by Governor Cellucci in September 2000,
provides a steady source of funding for expenditures that may otherwise be overlooked in favor
of the essential, daily operating needs of cities and towns. The CPA provides communities with
a tool to preserve their own unique character and quality of life. Since the CPA was signed into
law, 172 cities and towns across Massachusetts have adopted the statute.
The Community Preservation Act in Lexington
Lexington voters adopted the maximum 3% surcharge on property tax bills upon the adoption of
the CPA in 2006. Mindful of the burden on homeowners, however, the Town also adopted
provisions which exempt the first $100,000 of home value from the surcharge and grant a total
exemption from the surcharge to lower income residents.
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To-date, Lexington Town Meeting has appropriated nearly $63 million in funding for CPA
projects (not including debt service payments) in the four primary categories of Community
Housing ($8.8 million); Historic Resources ($31.8 million); Open Space Preservation ($14.4
million); and Recreational Resources ($6.6 million) and administrative expenses ($1.3 million).
ach category
by Town Meeting from 2006-2016:
Appropriated To-Date by Category as of 7/1/16
Administrative
Community
Expenses
Recreation Housing
2%
10%14%
Open Space
23%
Historic Resources
51%
over $13.5 million has been provided from state supplemental matching funds and $500,000
from a State Land (Local Acquisition for Natural Diversity) Grant. Therefore, nearly 21.5% of
CPA funding has been provided by state matching funds.
In its initial year, fiscal year 2007 (FY07), the surcharge brought in approximately $2.5 million
dollars, which was fully matched with state funds. Since FY07, however, annual revenue from
the local surcharge has steadily increased. Latest figures are available for FY16, for which the
surcharge raised $4,204,982. However, state matching funds, which come from a surcharge on
Registry of Deeds transaction fees, have fallen since FY08 despite an increase in home sales over
the last several years and a slight increase in collections this past year. This decrease in state
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matching funds is due primarily to an increased number of communities passing CPA by-laws
therefore competing for limited funds.
Lexingtonor 21.3% of its surcharge. Initial estimates from
the Department of Revenue (DOR) project
While slightly higher than the initial estimates, the FY17 state match is substantially lower than
s distribution.
(Source: Massachusetts Department of Revenue)
CPA STATE MATCHING FUNDS
TO DATE
FISCAL
PERCENTAGE AMOUNT
YEAR
2008 100.00 $2,556,362
2009 69.40 $1,927,708
2010 36.17 $1,060,390
2011 28.22 $858,729
2012 27.62 $885,463
2013 27.79 $929,507
2014 54.09 $1,932,347
2015 32.56 $1,230,116
2016 30.70 $1,229,774
2017 21.30 $897,243
TOTAL $13,507,639
During the last three consecutive fiscal years, Lexington has benefitted from surplus transfers
from the state budget to the CPA Trust Fund. The FY16 budget authorized the transfer of $10
million from the FY15 budget surplus, the FY15 budget authorized the transfer of $11.4 million
from the FY14 budget surplus and the FY14 budget authorized the transfer of $25 million from
the FY13 budget surplus. In July 2016, Governor Baker signed the fiscal year 2017 state budget
which authorized the transfer of $10 million from the FY16 budget surplus, marking the fourth
year the state budget included a surplus transfer to the trust fund. Unfortunately, the FY16 state
budget ultimately closed with a $0 balance, therefore eliminating the possibility of the $10
million transfer to the trust fund.
In 2016, a record 16 communities in Massachusetts placed CPA adoption on their ballots. 11 of
those communities voted during the November election to adopt the Community Preservation
Act, including the cities of Boston and Springfield. While most of the adopting communities
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voted for just a 1% or 1.5% surcharge (Watertown adopted a 2% surcharge), the impact of these
additional communities on future state disbursements will be seen in FY18.
While Lexington state match is heavily impacted by the lack of state budget surplus
funds and its FY18 state match expected to be impacted by the additional CPA communities,
CPA advocates hope that these foreseeable decreases will strengthen the effort to pass legislation
that calls for a permanent fix to the CPA Trust Fund. A piece of legislation introduced in 2015
entitled, An Act to Sustain Community Preservation Revenue, calls for a review of the fees
transaction fees have not been adjusted since the CPA was signed into law in 2000. If passed, it
would call upon the Department of Revenue to calculate the necessary fees that would allow for
all CPA communities to receive a 50% match in their first round distribution. The bill received a
favorable recommendation from the Joint Committee on Revenue in 2015. An update on this
legislation is expected in January 2017.
The Lexington CPC consists of nine members, one each appointed by the Conservation
Commission, Planning Board, Housing Authority, Historical Commission, Housing Partnership
and Recreation Committee, and three at-large members appointed by the Board of Selectmen.
The Committee is supported by a part-time Administrative Assistant.
in Lexington. To that end, the Committee has reviewed existing plans and documents related to
the four purposes designated for funding under the CPA: open space, historic resources,
community housing and recreation.
In reviewing new projects, the CPC:
Acts as a reviewing body for projects which fall within the CPA purview;
Acts as a funder, not a developer;
Seeks to advance community goals previously set forth in public documents that have
received wide review and public input;
Attempts to meet multiple community preservation goals in its selection of projects to
recommend to Town Meeting, and to the extent possible, meet multiple goals within each
project; and
Communicates its mission and goals to applicants, to other community boards and
committees and to the general public.
After comple
discussion and voting by Town Meeting members.
Purpose
developing community preservation goals for Lexington.The CPC has attempted to synthesize
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all planning efforts addressing the four purposes identified in the CPA. The Committee has
reviewed Lexington'scurrent resources and has outlined the needs and possibilities for
community preservation activities which will enhance open space, recreation, historic resources
and community housing. The CPC has set out the guidelines it will use to evaluate project
proposals as well as the process it will follow during this undertaking.
This Assessment sets out the goals and aspirations of the CPC, now in its tenth year of
implementation. The purpose of the Assessment is to:
Provide a clear statement of both broad and specific goals that lie behindthe CPC's
recommendations; and
Lay out the specific framework the CPC will use in formulating its recommendations,
both for the guidance of applicants and the understanding of Town Meeting.
Goals
-standing history of carefully assessing
Town needs and goals in light of the shared values of its residents. The Lexington
Comprehensive Plan, the Open Space and Recreational Plan, and the Town's Consolidated
Housing Strategy and Plan were created in this spirit. (For a complete list of Plans, Documents
and Studies that are used as CPC sources, see Appendix A). In the ten years since the adoption of
the CPA in Lexington, the CPC has strived to remain impartial while recommending worthwhile
projects that fall within the purview of the statute to Town Meeting. The CPC expects that the
CPA will continue to be a resource for carrying out the thoughtful community preservation
recommendations contained in these studies.
Subsequent sections of this Assessment discuss community goals and projects specific to
preservation within each of the four designated purposes of the CPA. In addition to these goals,
the CPC has articulated a set of guidelines that apply to projects generally. The CPC will use
these guidelines in its review and decision-making process. They are intended to provide
additional guidance to those preparing applications for funding. Not all guidelines will be
appropriate for every project.
Decision-Making Guidelines
The CPC will only consider proposals that are eligible for CPA funding according to the
terms of the statute (M.G.L. c.44B), specifically, proposals for:
The acquisition, creation and preservation of open space;
The acquisition, preservation, rehabilitation and restoration of historic resources;
The acquisition, creation, preservation and support of community housing
(including the creation of a housing trust for the purpose of preserving or
expanding the affordable housing supply; support in the form of rental assistance,
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security deposit assistance, interest rate write-downs or other financial assistance
for persons who qualify for community housing);
The acquisition, creation, preservation and rehabilitation and/or restoration of
land for recreational use; and
The rehabilitation and restoration of open space and community housing that has
been acquired with CPA funds.
Preference will be given to proposals which meet as many of the following general
criteria as possible, specifically those which:
Are consistent with current planning documents adopted by the Town;
Preserve the essential character of the Town as described in the Comprehensive
Plan;
Save resources that would otherwise be threatened;
Benefit a currently under-served population;
Serve more than one CPA purpose (for example, in linking open space,
recreation and community housing, or the reuse of historic resources for
community housing) or demonstrate why serving multiple needs is not feasible;
Demonstrate practicality and feasibility, and demonstrate that they can be
implemented expeditiously and within budget;
Produce an advantageous cost/benefit value;
Leverage additional public and/or private funds;
Preserve or use currently owned Town assets;
Receive endorsement by other municipal boards, committees or departments; and
Provide long-term contribution and/or enhancement to the Town.
Process
The Town Manager, Town boards, committees and departments, civic organizations and
residents may bring proposals for funding to the CPC. Such proposals must be submitted by
November 1 in the form prescribed by the CPC, in order to be considered for funding at the next
Annual Town Meeting. Except in exigent circumstances, the CPC does not review and submit
proposals to Fall Special Town Meetings. In cases where proposals are contingent upon Town
budget processes, or upon receipt of professional estimates, appraisals and the like, and cannot
be completed by November 1, initial proposals must be submitted by November 1, and
completed proposals must be submitted no later than January 15 of the following year. Proposals
submitted after January 15 will not be reviewed and submitted by the CPC to the Annual Town
Meeting, but may, after review and with the agreement of the applicant, be submitted to a
subsequent Town Meeting.
Under the CPA statute, the CPC does not have the power to appropriate funds for particular
projects, only to make recommendations to Town Meeting. While the power to appropriate CPA
funds is reserved solely for Town Meeting, it may act only upon the recommendations of the
CPC. It may choose to deny or reduce funding for a project recommended by the CPC, but it
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may not increase a recommended appropriation. Town Meeting also may not appropriate CPA
funds for any project that is not recommended by the CPC.
The CPC seeks a Town-wide and long-term perspective. The Committee expects to recommend
projects that will have a significant long-term benefit to the Town. It may choose to recommend
to Town Meeting that some or all o
and opportunities in the future. It may also recommend bonding of significant acquisitions and
projects in order to benefit the public good. The CPC strives to provide Town Meeting with a
strong and consistent rationale for its recommendations and to create an effective joint process
through which departments, organizations and citizens may gain access to CPA funds for
projects that will enhance the Town.
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Further Information
This document, and a wide range of community preservation information, including the
Application for Community Preservation Funding
, is available on the Town's web site at
http://www.lexingtonma.gov/community-preservation-committee.
Additional information on the Community Preservation Act, current CPA news and events, and
website: www.communitypreservation.org.
The General Guidelines and Process set out above apply in combination with category-specific
goals outlined in the next four sections of this Assessment.
This Community Preservation Needs Assessment is respectfully submitted to the residentsof
Lexington in the hope that it will provide a focus and catalyst for significant enhancement of
community preservation goals in Lexington.
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Town of Lexington
Community Preservation Plan
Community Housing
________________________________________________
BACKGROUND
-income category, earning over 80
percent of area median income. Updated in May 2014, Areawide Median Income for a family of
four in the Boston region was determined by the U.S. Department of Housing and Urban
Development (HUD) to be $94,100 in FY 2013. Eighty percent of the Areawide Median Income
for a family of four in the Boston re
complex formula for determination of this 80% figure, it is not simply arithmatic.) About 1 in 5
Lexington households falls into the moderate-, low-, or extremelylow income categories.
Lexington is faced with a declining population in the 18 to 44 age group. High housing costs
make it difficult for young people to afford a home in Lexington; the median sales price for a
single family home is in excess of $1,000,000 at present. At the same time, the population over
65 is on the increase. Members of this group often live on fixed incomes. There is a clear need to
create affordable rental and ownership opportunities for young families and senior citizens who
fall into the low-income or moderate-income categories.
Lexington has three housing organizations that are advocates for low and moderate income
housing.
Lexington Housing Authority (LHA)
The Lexington Housing Authority was established in 1968 pursuant to Chapter 121B of the
General Laws of Massachusetts. Its role is to provide safe, clean and affordable housing for low-
income individuals and families, including veterans, the elderly and the disabled. Housing units
administered by the Housing Authority are supported by either State or Federal funds. Since
2007, CPA funds have been used for capital expenditures to ensure that these units are safe and
functional.The Housing Authority is governed by a five-member Board of Commissioners, four
of whom are elected by Town voters and one of whom is appointed by the Governor.
Lexington Housing Assistance Board (LexHAB)
In 1983 the Lexington Housing Assistance Board, Inc. was established by an Act of the General
Court as requested by Town Meeting and the Board of Selectmen. The immediate impetus for
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housing. The charge to LexHAB was broadly framed to enable it to look beyond the Muzzey
units in order to provide housing for young families and other residents who could not qualify for
housing provided by the Housing Authority or for whom no LHA unit was available, but who
were nevertheless in need of housing assistance. The Town charged LexHAB, subject to the
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moderate and middle income families. LexHab provides rental housing to eligible persons and
families whose incomes do not exceed either 60% or 80% of the area median income for the
greater Boston area. Since it is locally sponsored, it is able (in cases where need is equal) to give
preference to applicants who have a Lexington connection through residence, work or school.
LexHAB is governed by a nine-member board appointed by the Selectmen.
Lexington Housing Partnership (LHP)
In 2003 the Lexington Housing Partnership was formed to promote and support affordable
housing activities and to recommend appropriate actions to the Board of Selectmen and the
Planning Board to further these goals. The LHP Board, appointed by the Selectmen, consists of
15 voting members and six liaisons representing the many committees, groups and individuals
who share a goal of providing affordable housing in Lexington.
CURRENT RESOURCES
LHA
The administers 240 affordable units of low/moderate income housing including apartment
complexes at Greeley Village, Vynebrooke Village and Countryside Village. In addition, the
authority owns a two-family house and seven condominium units. The majority of the units are
State-subsidized (154 units) while most of the remainder are subsidized by the Federal
Department of Housing and Urban Development (HUD) (77 units), with the State responsible for
capital improvement to all LHA units. The units are mostly occupied by seniors and by disabled
and handicapped individuals and families. The LHA also administers Federal Section 8 choice
vouchers and Massachusetts Rental Voucher Program project-based vouchers, which combined,
serve up to an additional 74 units. While none of the Lexington Housing Authority units were
purchased with CPA funds, there have been several CPA-funded projects that have benefitted the
Housing Authority by preserving existing units. These include window, roof and siding
replacement at Greeley Village, window replacement at Vynebrooke Village, and the funding of
a design study and funding for Vynebrooke Village to identify and improve on-site drainage. In
addition, CPA funds have been used for the construction of four additional units at Greeley
Village which are barrier-free and accessible for elderly residents and will help bring this
housing complex into compliance with State accessibility standards.
LexHAB
presently owns 64 units, all of which are rented to qualifying individuals or families.
There is no line item in the Town budget supporting LexHAB. It does not receive State or
Federal funds. The seed money for LexHAB was provided by the developers of Potter Pond and
Brookhaven, who donated funds for affordable housing in order to comply with the Planning
ousing policy. LexHAB purchased units at the former Muzzey Junior
High School, Emerson Gardens and Parker Manor. Since FY09, 10 units have been purchased
with CPA funds. A number of units have been donated to LexHAB as a result of rezoning plans
negotiated by the Planning Board and approved by Town Meeting. Two homes were donated to
LexHAB by their owners and were subsequently moved to Town-owned lots. Utilizing donations
and rental income from its housing units, LexHAB has built or rehabilitated 12 single and two-
family homes on scattered sites throughout the Town with the help of Minuteman Career &
Technical High School students and the Rotary Club.
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At the 2014 Annual Town meeting, voters approved CPA funding for LexHAB to construct two
residences, each with three apartments, on a half-acre portion of the Busa land, purchased earlier
with CPA funds. One apartment in each building will be handicapped accessible. The motion
authorized LexHAB to utilize $535,000 in unused CPA funds from the two previous year
appropriations, as well as an additional $750,000. An application for initial Department of
Housing and Community Development approval of this Local Initiative Program project will be
submitted in the near future.
LexHAB is also in the process of developing four units of housing on a 25,000 square foot parcel
on Fairview Avenue purchased with its own funds. This project entails rehabilitation of an
existing house and construction of a new residence with three apartments, one handicapped
accessible. This project has been approved by the Selectmen, DHCD and the Zoning Board of
Appeals. Construction is underway with completion expected in April 2017
At the 2009 Annual Town Meeting, Town Meeting Members approved use of about 30,000
square feet of the 14 acre Leary parcel for affordable housing. More than five years ago, a
Committee appointed by the Board of Selectmen made recommendations for housing at this site.
Progress to date is limited to the removal of the Leary residence from the site.
LexHAB will be rehabilitating a single family home on the one-acre Wright Farm parcel. CPA
funds for this work have been approved. The Town completed the purchase of the property in
February 2016 and transferred ownership of the parcel to LexHAB for the renovations to take
place. Approvals by DHCD and the Zoning Board of Appeals are necessary before construction
begins.
NEEDS
Both locally and statewide, the demand for housing affordable to low and moderate income
residents exceeds supply. The lack of such housing leads to a loss of diversity at the local level
and a loss of population at the state level as individuals and families abandon Massachusetts for
more affordable areas of the country. The State has sought to foster the creation of affordable
housing through M.G.L. c.40B, which mandates that each municipality have a minimum of 10%
of its housing stock in the affordable category in order to avoid the potential imposition of
housing developments that do not conform to local zoning bylaws.
by much larger and more costly homes. This pattern contributes to the very high average cost for
single family homes in Town. While the Town of Lexington is currently in compliance with the
10% requirement of State law, as more market rate housing is constructed, and as price
restrictions on some currently affordable housing units expire, the Town could easily drop below
the 10% threshold, allowing a developer who allocates 25% of a rental project to affordable
Bylaw. This provides a practical incentive for the Town to continue to add affordable units to its
inventory. It should also be noted that the 11.2% SHI figure which is presently quoted as
-restricted affordable units as
well as market rate rental units. The inclusion of market rate u
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compliance with 40B was allowed by the Department of Housing and Community Development
(DHCD) to encourage communities to create additional rental units. If this formula for
SHI figure would drop to around 5.5%, or
roughly half, - an incentive to continue to fund affordable housing projects.
It is important to recognize that an adequate stock of affordable community housing is an
important Lexington goal independent of the desire to avoid overly dense or otherwise
undesirable housing developments. Beginning as a farming community, Lexington has become a
suburban residential and commercial center with a population that is both ethnically and
economically diverse. After World War II, it attracted a large number of residents involved in
academic and scientific pursuits at nearby universities. Since then, its excellent schools and other
amenities have continued to draw new residents, many with origins outside the United States.
Wh,
profile increasingly includes retiring seniors who need less costly housing to stay in Town, as
well as municipal employees, veterans, and others who seek more modest housing. At present,
Lexington housing is largely unaffordable to young singles and families between 20 and 45,
has not been based primarily on the high price of admission, that is, expensive housing. The
Town has evolved as a place of academic and professional achievement with a commitment to
diversity and shared community involvement. The commitment to providing a range of housing
opportunities is a part of th
GOALS
1. Preservation and support of existing community housing, including State and Federally
subsidized units.
a.) Preservation of existing community housing through projects such as the following recent
endeavors managed by the LHA:
Installation of drainage structures and replacement of failing siding at Vynebrooke
Village;
Replacement of windows and roofs at Greeley Village.
b.) Financial support to LexHAB toward current acquisitions and renovations so that it can
maintain reserve funds sufficient to purchase community housing units at such time as their deed
restrictions expire.
2. Creation of additional units of affordable housing at an annual rate which will allow
Lexington, at a minimum, to maintain its current Subsidized Housing Inventory of State-
a.)Provide funds to LexHAB to enable it to purchase and rehabilitate existing housing units
which will then be deed restricted to maintain them as affordable units;
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b.)Provide funds to LexHAB, or another responsible entity acceptable to the Town, to contract
for and manage the construction of new units of affordable housing on Town-owned lands,
particularly on the Leary property;
c.)Encourage the Town Board of Selectmen to consider housing (as well as each of the other
purposes set out in the CPA) when acquiring land for the Town and designating its use.
3. Adoption of a Lexington Housing Production Plan to meet State requirements, to
clarify community housing needs and goals for Lexington residents, and to lay out a
blueprint for action for the next ten years.
RECOMMENDATIONS
As Lexington seeks to provide housing for different age groups and income levels, there are a
number of approaches which might make constructive use of CPA funds:
Acquisition or construction by LexHAB, or another responsible entity acceptable to
the Town, of at least two to three additional affordable rental units per year on
scattered sites throughout the Town, including parcels similar to the one secured by
and to be utilized by LexHAB on Fairview Avenue;
Construction by LexHAB, or another responsible entity acceptable to the Town, of
additional affordable units, rental or ownership, on Town-owned parcels, such as the
Leary land on Vine Street and the Busa Farm property;
When a site for affordable housing is identified, as in the cases of the Busa and Leary
properties, establish by action of the Board of Selectmen, at an early time, target dates
for completion of the steps necessary to bring the housing to completion;
Support of LexHAB funding to acquire housing units in existing multi-family
projects when their affordability restrictions expire;
Purchase of deed restrictions on existing homes to bridge the gap between current
market prices and affordable prices, so as to preserve smaller homes from tear down
and replacement;
When the Town acquires land, establish, at an early time, by action of the Board of
Selectmen, a well-publicized, public opportunity for the groups advocating for the
various Town core values to present proposals for use of all or part of the land in
question;
Investigation of specific housing programs for veterans and senior citizens; and
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Support of first-time homebuyer programs, including the Soft Second Loan Program
administered by the State Department of Housing and Community Development. The
2012 amendments to the Community Preservation Act explicitly provide that
rental assistance, security deposits, interest rate write downs or other forms of
assistance, directly to families or individuals who are eligible for community
In determining which strategies to support with recommendations for CPA funding, the
community housing.
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Town of Lexington
Community Preservation Plan
Historic Resources
________________________________________________
BACKGROUND
The Town of Lexington is rich in cultural resources. Its role in the Revolutionary War has
created a stewardship responsibility for its historical sites that extends to the nation at large; its
later role in commercial expansion due to the arrival of the railroad created a building boom of
thth
late 19 and early 20 century housing stock that continues to distinguish the Town. Structures
of the recent past Moon Hill, Five Fields and the Peacock Farm enclaves throughout Town,
among others ral heritage.
Lexington has received national and state recognition of its historic resources: four properties or
areas, the Battle Green, Buckman Tavern, the Hancock-Clarke House, and the Minuteman
National Historical Park, have been designated as National Historic Landmarks by the U.S.
Secretary of the Interior. Ten additional properties are individually listed on the National and
Districts (The Lexington Green Historic District, the Buckman Tavern Historic District, the
Sanderson House - Munroe Tavern Historic District, the Peacock Farm Historic District and the
Six Moon Hill Historic District) and their contributing properties. The Metropolitan State
Hospital Multiple Property National Register listing, (shared with the towns of Belmont and
Waltham) also contains a number of significant buildings. In addition, the recently-listed Mid
Century Modern Houses of Lexington Multiple Property Submission highlights the unique
protected through inclusion within one or another of the Town-established local historic districts
(Battle Green, East Village, Hancock-Clarke, Munroe Tavern).
historic Town assets,
to its Revolutionary War heritage has been executed
sense of place, attracting people to come and live here and stay. The impact of our historic
resources also extends beyond the boundaries of the Town, providing educational opportunities
urist dollars to
support the local economy.
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CURRENT RESOURCES
To manage these cultural resources, the Town employs a powerful array of tools. They include
oversight by the Lexington Historic Districts Commission, the Lexington Historical
Commission, the Design Advisory Committee and, for those resources located in the Town
Center, the Lexington Center Committee. In addition, 2016 Spring Town Meeting approved
enabling legislation to permit Neighborhood Conservation Districts upon application and
approval of the requesting neighborhoods.Two nationally known historic resources are located
within Lexington, the Scottish Rite Masonic Museum and Library and the Minute Man National
Historical Park, which is part of the National Park System.
Historical Districts Commission (HDC)
The Historic Districts Commission of Lexington was established in 1956 by Special Act of the
through the preservation and protection of historic buildings, places and districts through the
development of appropriate settings for said buildings, places and districts and through the
ensures that development or demolition of properties within the four historic districts may
proceed only following a determination of appropriateness. The five full and four alternate
members of the HDC are appointed by the Selectmen, to serve at large, and from candidates
proposed by the Historical Society, the Arts and Crafts Society, and the Cary Library Trustees.
Lexington Historical Commission (LHC)
Similarly, the Lexington Historical Commission was created in 1975 by vote of Town Meeting
the Town. The LHC has prepared an inventory of historical structures located throughout the
Town that documents over 2,000 buildings, structures and objects and is accessible through the
Demolition Delay Bylaw to ensure that every
effort is made to preserve these historically and architecturally significant structures. The LHC
also endeavors to educate citizens on the breadth and importance of Lexington
heritage. The five members of the LHC are appointed by the Town Manager.
Neighborhood Conservation Districts (NCDs)
The creation of Neighborhood Conservation Districts was approved under Article 29 of the 2016
Spring Town Meeting "to preserve, protect and enhance" Lexington's "unique and distinctive"
neighborhoods by conserving and preserving existing buildings, fostering appropriate reuse and
encouraging compatible new construction, all through Town-appointed neighborhood review
boards. To date, two neighborhoods have applied to self-regulate through an NCD: the Turning
Mill Neighborhood and the Byron/Lockwood Neighborhood.
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Lexington Historical Society
On a private level, the Lexington Historical Society plays a number of key roles, including the
ownership and management of the Hancock-Clarke House, Munroe Tavern and the Depot and
management of Buckman Tavern under a long-term lease from the Town, as well as through
publications, the presentation of educational programs and the maintenance of an important
archive.
The Scottish Rite Masonic Museum and Library
The Scottish Rite Masonic Museum and Library,founded and supported by the Scottish Rite
Freemasons, also provides resources and programs on American history and culture that draw
national and international visitors and complement the cultural management efforts of the Town.
The Minute Man National Historical Park
The Minute Man National Historical Park, established in 1959 and located in Lexington as well
as Lincoln and Concord, is a 1.2 mile linear park commemorating the opening battle of the
American Revolution in 1775. Sites in Lexington include Fiske Hill, an important battle site, the
Jacob Whittemore House, , the second battle of April 19,
1775.
NEEDS AND GOALS
The goals for historic preservation in Lexington are embodied in the criteria for evaluation of
potential CPA projects. The CPC seeks projects that:
Protect, preserve, enhance, restore and/or rehabilitate historic, cultural, architectural or
archaeological resources of significance, especially those that are threatened;
Protect, preserve, enhance, restore and/or rehabilitate Town-owned properties, features or
resources of historical significance;
Protect, preserve, enhance, restore and/or rehabilitate the historical function of a property
or site;
Support the adaptive reuse of historic properties;
Affect a site within a Lexington Historic District, on a State or National Historic Register,
or eligible for placement on such
Cultural Resources Inventory;
Demonstrate a specific public benefit; and/or
Provide permanent protection for maintaining a historic resource.
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RECOMMENDATIONS
These goals can be addressed, first, through the comprehensive identification of the historic
resources that are at risk in Lexington due to lack of funding, insensitive alterations or deferred
maintenance, or other lack of stewardship. Second, the Town needs to provide the incentives to
promote successful and sensitive rehabilitation/restoration projects, in compliance with the
CFR 67) and the adaptive reuse of historic buildings that have outlived their original purposes.
Third, Lexington should be aware of the full complement of preservation techniques available to
it, including the creation of neighborhood conservation overlay districts to protect areas where
the substantial oversight and control of a historic district is not warranted or feasible, and the
purchase of preservation easements from owners of historic houses that would equalize their
economic value so that they could be sold as houses rather than teardown opportunities. Special
attention should be paid to threatened classes of resources, such as Mid-Century Modern homes
and landscapes, post-World War II buildings, historic schools, and unique examples of
Lexingon's commercial and residential architecture, especially those reflecting a high level of
architectural and historical significance, with accompanying design integrity, intact settings or
landscapes, and associations with notable individuals and/or architects.
Specific projects might include the following:
Acquisition of historic properties
buildings, landscapes, sites, structures or
preservation easements. CPA funds could help bridge the economic gap to make possible
the acquisition and adaptation of older, historic homes for affordable housing or assisted
living as an alternative to teardown and redevelopment. Lexington CPA funding
contributed to the acquisition and reuse of the M. H. Merriam and Co. Building on
Oakland Street, a former factory that was converted into the Douglas House, a residence
for survivors of brain injuries; and the Tower Estate on Marrett Road, formerly the
headquarters of the Scottish Rite Masons and now rehabilitated and repurposed as the
Bricks and mortar repairs and rehabilitation
, including preparation of plans and
specifications for construction, architectural/engineering assessments, and modifications
for accessibility, and HVAC updates, to historic resources, including modifications for
the purpose of making such historic resources accessible and/or functional for their
for Rehabilitation. Examples of past projects include the restoration of the exterior of the
Stone Building (East Lexington Library) on Massachusetts Avenue, the Hancock-Clarke
House, Munroe Tavern and Buckman Tavern. Importantly, the CPA-funded rehabilitation
of the Cary Memorial Building and the Community Center is now complete. Future
projects could include restoration and rehabilitation of other buildings on the Battle
18
Documentation, survey, conservation and restoration of historic landscapes
,
including historic burying grounds and monuments. Examples would be recent CPA-
Application for survey and planning grants
for updating existing inventories and
National Register nominations, with special emphasis on Mid-Century Modern
neighborhoods and the social changes that accompanied these resources. CPA funds
provide important matching funds for other grant opportunities, including grants from the
Massachusetts Historical Commission. Past CPA grants have enabled the updating,
correction and posting on-
study of the Mid-Century Modern movement in Lexington. Projects recently completed
include the preparation of National Register of Historic Places nominations for the
Peacock Farm and Six Moon Hill neighborhoods, a review of the Inventory listings on
Meriam Hill and the research and documentation of 123 new properties long pending for
inclusion in the Inventory.
Educational projects
such as research of historic sites and buildings and the installation
of informational signs that encourage the preservation of historic resources. CPA has
provided funding for extensive archaeological research into the battle site of Parker's
Revenge, within the Minuteman National Historical Park. CPA funding has also enabled
the placement of directional and informational signage throughout the historic center of
Town, as well as the posting online of a survey of historical periods in Lexington, historic
maps, a guide to the architectural styles of houses found here and a bibliography of
and repair of the Tercentenary guidepost signs formerly located at key intersections and
the guideposts for the "Preserving Our Heritage" Walking Trails.
Preservation of historic documents and archival materials.
The Town Clerk has
-year
project using CPA funding. The Lexington Historical Society and the Cary Memorial
Library have similarly used CPA funds to conserve important historical records.
19
Town of Lexington
Community Preservation Plan
Open Space
________________________________________________
BACKGROUND
Open space is one of the defining characteristics of Lexington. It enhances the historical and
scenic character of the Town, protects important watershed and biological values, including
wetlands, streams, floodplains and wildlife habitat and affords opportunities for passive
recreational and educational uses, including hiking, walking, bird watching, picnicing, and nature
exploration.
CURRENT RESOURCES
natural resources, enforcing the Massachusetts Wetlands Protection Act (M.G.L. c. 131 §40) and
acquiring and managing open space. The sevenmember Commission is appointed for
overlapping three-year terms by the Town Manager with the approval of the Selectmen.
Out of approximately 10,650 acres, Lexington currently has more than 1,350 acres of
conservation land, and approximately 400 acres reserved for recreation, including parkland.
Town fiscal demands and restraints associated with Proposition 2½ have been accompanied by
the constant pressure of development, resulting in an absence of land acquisition by the Town in
the 10-15 years prior to the adoption of the CPA. (For a list of specific goals and priorities for
open space and recreation purposes, see the 2015 Lexington Open Space and Recreation Plan,
which can be viewed in the Conservation Office or online at
http://www.lexingtonma.gov/conservation/pages/conservation-land#anchor_plan). The CPA has
enabled the acquisition and protection of open space by providing funds for the outright purchase
of land to be owned by the Town or for the purchase of permanent conservation or agricultural
restrictions that provide protection to privately owned land. Since the passage of the CPA, the
Town has purchased six parcels of land totaling approximately 65.1 acres. Of this total, 57.2
acres have been devoted to conservation purposes. These include the two Goodwin Parcels off
Hartwell Avenue, the Leary Parcel off Vine Street, the Cotton Farm Parcel off Marrett Road and
the Wright Farm property off Grove Street. The 7.9 acre Busa Farm parcel off Lowell Street was
also purchased with CPA funds. It has been subdivided, and a 20,198 square foot parcel has been
designated for community housing (per Approval not Required Plan, dated February, 2014.).
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NEEDS AND GOALS
:
The goals for open space include, but are not limited to the following:
Protection, through acquisition or conservation restrictionsof parcels of highest scenic and
,
historic character
. Parcels are considered significant if they preserve one or more of the
following:
Historic landscapes and the visual relationships between historic buildings and their
settings;
The visual character of the Town, particularly of those areas designated as scenic; and/or
Open fields and meadows visible from public roads.
Protection, through acquisition or conservation easements, of parcels of highest
environmental value
. Parcels are considered significant if they preserve one or more of the
following:
Wetlands and watershed resources;
Agricultural land;
Greenway connections and wildlife corridors; and/or
Wildlife habitat.
Acquisition of appropriate parcels to enhance recreational and educational opportunities
of open space.
Parcels appropriate for this purpose may include but are not limited to the
following:
Trail connections or access to conservation land;
Open spaces near schools, and
Open spaces accessible to people of all ages and abilities.
RECOMMENDATIONS
The Town should continue to monitor the status of parcels on its Land Acquisition
Planning Report so as to be able to move promptly when such parcels become available
for sale or donation to the Town.
21
Because land acquisitions are expensive, the CPC may consider banking CPA funds
designated for open space over the annually required 10% to insure that open space
reserves will be available to initiate such purchases.
22
Town of Lexington
Community Preservation Plan
Recreation
________________________________________________
BACKGROUND
for the broad spectrum of Lexington residents. The Recreation and Community Programs
Department, supported by the Town Manager-appointed five-member Recreation Committee,
administers and promotes recreation and wellness programs in the Town and manages the
Lexington Community Center, neighborhood parks and playgrounds, athletic fields and other
recreational facilities including the public swimming facilities at the Irving H. Mabee Town
Pool Complex, the Old Reservoir and Pine Meadows Golf Course.
CURRENT RESOURCES
The Recreation and Community Programs Department manages approximately 439 acres
of parks and recreation land. A most important recreational resource for Lexington is the
Pine Meadows Municipal Golf Course, which is one of the main revenue sources for
funding capital improvements through the Recreation Enterprise Fund. Regular course
improvements and upgrades to the facility have made Pine Meadows a popular
destination for local golfers, thus helping to ensure the financial strength of the Enterprise
Fund and its role in supporting Department programs. Other important recreational
resources include: the Irving H. Mabee Town Pool Complex, Old Reservoir, tennis
courts, Center Track, bikeways, walking trails, the skate park, outdoor basketball courts,
multi-use athletic fields, Community Center, and neighborhood parks and playgrounds.
NEEDS AND GOALS
The need for rehabilitation of recreation facilities, especially athletic playing fields, has increased
as activities have grown to include younger participants and senior adults, gender equality and
special needs issues, longer and multiple seasons, and a greater number and variety of new sports
and activities.
General recreation goals include:
natural and recreational resources;
Preserve, rehabilitate, restore and/or and protect existing recreational facilities such as:
the Irving H. Mabee Town Pool Complex, Old Reservoir, Pine Meadows Golf Course,
23
tennis courts, Center Track, bikeways, walking trails, the skate park, outdoor basketball
courts, multi-use athletic fields and neighborhood parks and playgrounds.
Acquire land for active and passive recreation, including playing fields; consideration
should be given to recreational uses whenever the Town looks to acquire additional open
space;
Provide integration of recreational activities, such as the CPA-supported West Lexington
Greenway for bicycles and walkers, with other Town Departments, such as the
Conservation Department;
Provide a balance of recreation and leisure activities (active, passive, structured and
unstructured) for residents of Lexington; and
Collaborate with Town Departments in continuous planning and implementing recreation
and leisure opportunities for residents of all ages and abilities at the new Community
Center.
RECOMMENDATIONS
Additional athletic fields to meet the increasing needs of the community.
New active recreational resources, including playing fields and playgrounds, with special
attention to universal access, as well as adult/senior and toddler recreational needs.
More recreational access/use of open spaces and natural resources (where appropriate),
including areas for hiking, bicycling, cross-country skiing, and fishing.
rehabilitation and restoration of existing recreation facilities as outlined in the
Recreation 5-Year Capital Plan, the Open Space and Recreation Plan, and the 2014-2016
Recreation Strategic Plan.
Preservation, rehabilitation, and restoration measures to extend the life and use of
existing recreational facilities, such as neighborhood parks and playgrounds, tennis
courts, as well as larger projects including drainage improvements at the Center Playing
Fields, the Old Reservoir, and Pine Meadows Municipal Golf Course.
24
Town of Lexington
Community Preservation Plan
Appendix A
Plans, Documents and Studies
________________________________________________
BOARD OF SELECTMEN
ting (annual documents 1997-2015).
PLANNING BOARD
Design Guidelines for Commercial Districts, Volume I: Public Improvements (1990) and
Volume II: Private Sector Improvements (David Dixon & Associates; The Halvorson
Company, 1990).
Report on Housing Characteristics in Lexington: Promises and Performance, August,
1990.
Land Use Change in the Eighties Lexington, MA. April, 1993.
New Large Houses in Existing Neighborhoods. Robert A. Boyer, 1994.
Socio-Economic Characteristics of Lexington, MA, Vol. 1: Population. April, 1994.
Commercial Development in the CRO, CM and CD Zoning Districts. April, 1997.
New Larger Houses in Existing Neighborhoods. July, 1997.
Lexington Center Parking Study. Vanasse Hangen Brustlin, Inc., 2001.
Lexington Comprehensive Plan:
Land Use (1/2002).
Natural and Cultural Resources (1/2002).
Economic Development (1/2002).
Transportation (6/2003).
Lexington Center Analysis. Taintor Associates, Inc., 2004.
25
Marrett Road/Spring Street/Bridge Street Intersection Study Phase I (7/2005) and Phase
II (5/2006).
Revised Zoning Map of Lexington 2009.
Lexington Center Streetscape Concept Plan. December, 2011.
Town of Lexington, Parking Technical Assistance Final Report. Nelson Nygaard,
July, 2010.
East Mass Ave Roadway Improvement Project, Functional Design Report. BSC Group,
January 2014.
CAPITAL EXPENDITURES COMMITTEE
Town Five-Year Capital Plan
2020 VISION COMMITTEE
Visioning Reports, 2000 2007.
Report of the Demographic Change Task force Final, March 19, 2010.
COMMUNITY HOUSING
Lexington Consolidated Housing Strategy (2006-2010).
Affordable Housing Subsidy Executive Summary, 2010.
Affordable Housing Subsidy Plan, 2010.
Lexington
Design. January 20, 2010.
HISTORIC PRESERVATION
Lexington Cultural and Historic Inventory (updated December, 2015), online at
http://historicsurvey.lexingtonma.gov.
26
Lexington Battle Green Area Master Plan, Town of Lexington, March 14, 2011, online at
http://www.lexingtonma.gov/battle-green-master-plan.
History of Lexington Municipal Buildings, September 21, 2011, online at
http://historicsurvey.lexingtonma.gov/municipal-buildings-report.pdf.
Planning Report for the Stone Building, June 2008, Volume 1 and 2, on file at the Cary
Memorial Library.
Stone Building Historic Structure Report and Recommendations for Rehabilitation and
Reuse, September, 2009, on file at the Community Preservation Committee office.
Historic Structure Report, the Hosmer (White) House, November 30, 2010, online at
http://www.lexingtonma.gov/hammond-hosmer-house-white-house/pages/historic-
structures-report.
Cary Memorial Building Evaluation, Final Report, June 1, 2011, online at
http://records.lexingtonma.gov/WebLink8/0/doc/226298/Page5.aspx.
Leary House Condition Report, March 1, 2010, on file at the Community Preservation
Committee Office.
Muzzey Junior High Condominiums Envelope and Systems Analysis, April 9, 2008, on
file at the Community Preservation Committee office.
Estabrook School Historic Structure Report, June 2012, on file with the Lexington
Historical Commission.
Hancock-Clarke House, 2007 Restoration Report, on file at the Community Preservation
Committee office.
Munroe Tavern Historic Structure Report, January, 2010, on file at the Community
Preservation Committee office.
Buckman Tavern, Historic Structure Report, October 21, 2012, on file at the Community
Preservation Committee office.
OPEN SPACE/CONSERVATION/RECREATION
Open Space and Recreation Plan, Updated 2015.
http://www.lexingtonma.gov/conservation/pages/conservation-land#anchor_plan
27
Recreation 5-Year Capital Plan.
Recreation Strategic Plan, 2014-2016.
Priority Habitat and Estimated Habitat Map for Rare Species.
BioMap and Living Waters Plans and Map.
Aerial Photo Survey of Potential Vernal Pools.
Priority Resource Map.
Western Greenway Map.
Heritage Landscape Inventory
DEPARTMENT OF PUBLIC WORKS
Town Maps
28
Town of Lexington
Community Preservation Plan
Appendix B
Glossary
________________________________________________
Capital Improvements
- reconstruction or alteration of real property that: (1) materially adds to
the value of the real property or appreciably prolongs the useful life of the real property; (2)
becomes part of the real property or is permanently affixed to the real property so that removal
would cause material damage to the property or article itself; and (3) is intended to become a
permanent installation or is intended to remain there for an indefinite period of time.
Community Housing
- housing for those persons and families whose annual income is less
than 80 per cent of the area-wide median income. The area-wide median income is determined
annually by the United States Department of Housing and Urban Development for specific
regions, including the Boston Metropolitan Area.
- housing for those persons and families whose annual income is
less than 100 per cent of the area-wide median income. The area-wide median income is
determined annually by the United States Department of Housing and Urban Development for
specific regions, including the Boston Metropolitan Area.
- housing for those persons having reached the age of
60 or over who would qualify for low or moderate income housing.
Community Preservation Act (CPA)
The Community Preservation Act (CPA) (MGL c. 44B) is legislation designed to help
communities plan ahead for the preservation of important resources and to raise funds to achieve
their goals. CPA allows towns to levy a community-wide property tax surcharge of up to 3 per
cent for the purpose of creating a local Community Preservation Fund (CPF) and qualifying for
State matching funds. The Fund must be used to acquire, create, preserve and rehabilitate or
restore (if purchased with CPA funds) open space; acquire, preserve and rehabilitate or restore
historic resources; acquire, create, preserve, suport and rehabilitate or restore (if purchased with
CPA funds) community housing, and may be used to acquire, create, preserve or restore or
rehabilitate recreational resources. Th
approving CPA by-laws, which Lexington did in 2006 at a 3% level.
29
Community Preservation Committee (CPC)
A nine-person committee with individual members appointed by the Conservation Commission,
Historical Commission, Housing Authority, Housing Partnership, Planning Board, Recreation
Committee, and three at-large members appointed by the Board of Selectmen. The Committee
reviews funding applications and makes recommendations to Town Meeting for the
appropriation of CPA monies to support approved projects. It consults broadly with Town
organizations, boards and committees.
Community Preservation Fund (CPF)
A separate Town account for the deposit of all surcharges collected and State matching funds.
Sub-
required shares of the annual revenue added to the CPF are either spent each year or allocated to
the appropriate reserve funds. These are:
Open Space Reserve Fund (minimum of 10% annually)
Historic Resources Fund (minimum of 10% annually)
Community Housing Reserve Fund (minimum of 10% annually)
Unbudgeted Reserve Fund (remaining 70% of funds, less administrative costs)
Undesignated Fund Balance
Administrative /Operating Fund (up to 5%)
The CPC is permitted to appropriate up to 5% of the funds for administration and operational
expenses of the Committee. For example, these funds can be used to hire support staff, purchase
office supplies, do mailings and cover the cost of professional services as needed. Any
administrative monies not used in a given fiscal year are returned to the CPF Undesignated Fund
Balance.
Recreation projects are eligible for CPA funding but there is no minimum amount specified by
the Act.
Beyond these required disbursements, Town Meeting, acting upon the recommendations of the
CPC, will decide the allocation of the remaining 70% of annual CPA revenues. For example, the
CPC could recommend and Town Meeting could allocate the remaining 70% of annual revenue
to one purpose, spread it evenly among all four, or set the funds aside for future spending. These
allocations can be changed each year.
Community Preservation Surcharge
The locally raised share of CPA revenue comes from a surcharge (additional amount based on
the real-estate tax) on real estate tax bills. Lexington voted a 3% surcharge which is separately
stated on each tax bill.
Community Preservation Surcharge Exemptions
30
Taxpayers currently exempt from real property taxes under Chapter 59 of Massachusetts General
Laws are exempt from the CPA surcharge. In addition, Town Meeting approved exemption of
the first $100,000 of taxable value of residential real estate. Exemptions, as well as the surcharge
percentage, can be changed at any time with the approval of Town Meeting and subsequent voter
referendum; however, a sufficient surcharge must remain each year to meet any remaining long-
term obligations (e.g., debt service on bonds) of the CPF.
Historic Resources
document or artifact
that is listed on the State Register of Historic Places or has been determined by the Historical
Commission to be significant in the history, archeology, architecture or culture of a city or town.
Lexington Community Preservation By-Law
A copy of the By-Law can be obtained online at http://www.lexingtonma.gov/community-
preservation-committee.
Maintenance
Incidental repairs which neither materially add to the value of the property nor appreciably
readiness.
Open Space
Open space shall include, but not be limited to, land to protect existing and future well fields,
aquifers and recharge areas, watershed land, agricultural land, grasslands, fields, forest land,
fresh and salt water marshes and other wetlands, ocean, river, stream, lake and pond frontage,
beaches, dunes and other coastal lands, lands to protect scenic vistas, land for wildlife or nature
preserve and land for recreational use.
Preservation
destruction.
Recreational Use
use of land for community gardens, trails, and non-commercial youth and adult sports, and the
use of land as a park, playground or athlet
dog racing or the use of land for a stadium, gymnasium or similar structure.
31
Rehabilitation
historic resources, open spaces, lands for recreational use and community housing for the
purpose of making such historic resources, open spaces, land for recreational use and community
housing functional for their intended use, including but not limited to improvements to comply
with the American with Disabilities Act and other Federal, State or local building or access
for Rehabilitation stated in the United States
Treatment of Historic Properties codified in 36 CFR Part 68; and provided further, that with
equipment and other capital improvements to the land or the facilities thereon which make the
land or the related facilities more functional for the intended recreational use.
Support of Community Housing
Community Housinghall include, but not be limited to, programs that provide
grants, loans, rental assistance, security deposits, interest-rate write-downs or other forms of
assistance directly to individuals and families who are eligible for community housing or to an
entity that owns, operates or manages such housing, for the purpose of making housing
affordable.
Updated by the Community Preservation Committee, December, 2016.
Marilyn Fenollosa, Chair (Historical Commission)
Richard Wolk, Vice-Chair, (Conservation Commission)
Charles Hornig (Planning Board)
Norman Cohen (at large, appointed by the Board of Selectmen)
David Horton (at large, appointed by the Board of Selectmen)
Jeanne Krieger (at large, appointed by the Board of Selectmen)
Robert Pressman (Housing Partnership)
Sandra Shaw (Recreation Committee)
Melinda Walker (Housing Authority)
32