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HomeMy WebLinkAbout2018-12-00-CPC-rpt (Needs Assessment Report) Town of Lexington 2018 Community Preservation Plan: A Needs Assessment g MOAN! 1773 APRIL l9- �FX►NUT December, 2018 Town of Lexington Community Preservation Plan Overview The Community Preservation Act In March of 2006, the residents of Lexington voted 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 "state match." 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 year may be"banked" or carried over to subsequent years within each main designation. The remaining 70% of CPA funds received in each fiscal year are available to be appropriated or banked, according to the community's discretion. Up to 5% 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, 175 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. 1 To-date, Lexington Town Meeting has appropriated over $72 million in funding for CPA projects (not including debt service payments) in the four primary categories of Community Housing ($11.2 million); Historic Resources ($33 million); Open Space Preservation ($14.8 million); and Recreational Resources ($13.1 million). Town Meeting has also approved administrative expenses totaling $1.6 million which help fund staff salaries, mailings,public notices, real estate appraisals, legal fees, membership dues and other miscellaneous expenses related to CPA projects. The chart below illustrates the percentage of Lexington's CPA funds allocated to each category by Town Meeting from 2006-2018: Appropriated To-Date by Category as of 7/1/18 Recreational Resources 01,,)en Sl,,.)ace 41 20% ic�miil xla 1s Community y I-i�ausiilg .1.5% I"'iistoPlc Resources '..... 45 uum 0Ioen.sioace uuu Admin I:::.XIoenses um Community I"'iousing " I"'iistoPlc Resources uoi Recreational Resources Of the funds that have been appropriated from the Town's Community Preservation Fund (CPF), over $15.2 million has been provided from state supplemental matching funds and $500,000 from a State LAND (Local Acquisition for Natural Diversity) Grant. Therefore, over 21% 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, annual revenue from the local surcharge has steadily increased. Latest figures are available for FYI 8, for which the surcharge raised $4,659,786. However, state matching funds, which come from a surcharge on Registry of Deeds transaction fees, have fallen since FY08. Lexington's FY19 state match totals $922,256, 2 or 19.8% of its surcharge. While higher than the initial estimates, the FYI state match received an increase due to the 2018 State Budget surplus of$10 million. If the surplus had not been allocated to the CPA Trust Fund then the state match would have been $669,247 or 14.37%, the lowest distribution since Lexington adopted the Community Preservation Act. Initial estimates from the Department of Revenue (DOR)projected this year's state match distribution at just 10%. Record of Lexington's CPA State Matching Funds (Source: Massachusetts Department ofRevenue) 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 2018 17.80 $789,905 2019 19.80 $922,256 TOTAL ' : 11 The general decrease in state matching funds is due primarily to an increased number of communities passing CPA bylaws therefore competing for limited funds and stagnant recording fees collected at the State's Registries of Deeds. The current transaction fees have not been adjusted since the CPA was signed into law in 2000. 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 voted for just a 1% or 1.5% surcharge, the impact of these additional communities on future state disbursements will be seen in FY19. The FYI Trust Fund Distribution for the city of Boston totaled $3,612,857. The city of Boston collected a FYI CPA surcharge of$19,000,182. Lexington has benefitted from surplus transfers from the State budget to the CPA Trust Fund in previous fiscal years, including, as noted above, its share of$10 million from the FY18 State Budget surplus. Surplus funds often are not available, however, and the Trust Fund will continue to decline. The Governor of Massachusetts, Charlie Baker, speaking at a Massachusetts Association of Community Development Corporations (MACDC) Convention on October 20, 3 2018, agreed that 18 years is a long time for a program to go without increased funding. Baker said, "It's obvious there needs to be an adjustment made", and he promised to sign such an adjustment, if the Legislature sends it to his desk. (https:Hmacdc.org/highlights-governor-baker- speaks-2018-macdc-convention) While Lexington's FY19 state match (not including the $10 million dollar surplus) is at an all- time low, CPA advocates believe this actually strengthens the argument for a permanent fix to the CPA Trust Fund. A piece of legislation entitled,An Act to Sustain Community Preservation Revenue, calls for a review of the fees collected at the Registries of Deeds (the trust fund's primary source of funding). 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, co-sponsored by 124 legislators, advanced to the House Committee on Ways & Means in the spring of 2017. Unfortunately, the bill stalled. 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. The CPC is required to study the "needs, possibilities and resources" for community preservation 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 completion of its review, the CPC's recommendations are forwarded to Town Meeting for discussion and voting by Town Meeting members. Purpose This Needs Assessment Report("the Assessment")is a summary of the CPC's work in developing community preservation goals for Lexington. The CPC has attempted to synthesize all planning efforts addressing the four purposes identified in the CPA. The Committee has 4 reviewed Lexington's current 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 twelfth year of implementation. The purpose of the Assessment is to: • Provide a clear statement of both broad and specific goals that lie behind the 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 Lexington's committees and commissions have a long-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 twelve 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, security deposit assistance, interest rate write-downs or other financial assistance for persons who qualify for community housing); 5 • 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 each year using the application form prescribed by the CPC, in order to be considered for funding at the next Annual Town Meeting. (See "Further Information" below.) 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. Town Meeting may choose to deny or reduce funding for a project recommended by the CPC, but it may not increase a recommended appropriation. Town Meeting also may not appropriate CPA funds for any project that is not recommended by the CPC. 6 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 of CPA funds be "banked" or reserved for significant projects 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. 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.Iexingtonma.gov/community-preservation-committee. Additional information on the Community Preservation Act, current CPA news and events, and other CPA communities and projects can be found on the Community Preservation Coalition's website: www.communiiypreservation.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 residents of Lexington in the hope that it will provide a focus and catalyst for significant enhancement of community preservation goals in Lexington. 7 Town of Lexington Community Preservation Plan Community Housing BACKGROUND Lexington's efforts to maintain an economically diverse community are evidenced by actions spanning many years. The Lexington Housing Authority (LHA), established in 1969 pursuant to Chapter 121B of the Mass. General Laws, now provides 248 units for low- income individuals and families, including veterans, the elderly and the disabled. LHA operates three apartment clusters (Greeley Village, Vynebrooke Village and Countryside Village), and implements several other programs. The Lexington Housing Assistance Board(LexHAB), created by a special legislative act in 1983, now administers 72 housing units for persons of low, moderate and middle income. The Board of Selectmen created the Lexington Housing Partnership in 2003; its primary function is to advocate for housing for persons of low and moderate income (now generally referred to as "affordable housing"). The Town's housing goals have also been expressed in planning documents. The "(2020) Town- Wide Vision Statement," written in year 2000, referred not only to"preserving and maintaining a sense of community that includes [the Town's] historic tradition, its public and private open spaces, and its public support for civic life," but also to "striv[ing] . . . to maintain a range of affordability." The"Land Use" summary of the 2002 Comprehensive Plan identified "Housing to support the social and economic diversity of Lexington" as the first of the "Goals and Actions" "flow[ing] from the other elements of the Comprehensive Plan." (Executive Summary at IV.) More recently, the 2014 Lexington Housing Production Plan prepared for the Town of Lexington by the Metropolitan Area Planning Council reiterated the need for additional affordable housing in Lexington. Massachusetts General Law Chapter 40B, enacted in 1969, mandates that each municipality have a minimum of 10% of its housing stock meet certain requirements in order to avoid housing developments that do not conform to local zoning bylaws. With 11.2% of its housing units included on the "subsidized housing inventory" (SHI), Lexington is currently in compliance with the Chapter 40B standard. However, only about one-half of these units actually satisfy the regulatory affordability definition. This is explained by the fact that when 25% of the units in a rental development are deed-restricted as affordable, all units are counted in the SHI tabulation. This approach was adopted to encourage the creation of rental units. Compliance with 40B, alone, has not satisfied the community. Continuing efforts to create additional affordable units evidence this fact. The Town remains committed to the diversity goal expressed in the Vision Statement and the Comprehensive Plan. THE CURRENT SETTING 8 The effort in Lexington "to maintain a range of affordability" is increasingly difficult. The current median sale price for a single family home in Lexington is approximately $1,269,701 affordable only to families making at least$307,000/year (250% of the area median income for a family of 5). Current monthly market-rate rents in Lexington average approximately $2,800 for a 2-bedroom apartment, affordable only to families making at least$112,000/year(115% of the area median income for a family of 3). The gradual replacement of smaller homes with larger, more expensive homes continues. Depending upon the size and the type of housing unit, the LHA's wait time for eligible households varies from one and a half to eight years. Escalation of the cost of more modest residences and properties, due in some measure to developers' willingness to pay high prices for teardown sites, has limited LexHAB's ability to secure and rehabilitate such residences for affordable housing. THE ROLE OF THE COMMUNITY PRESERVATION ACT The CPA authorizes acquisition, creation, preservation and support of"community housing" activities, as well as the rehabilitation and restoration of community housing that has been acquired with CPA funds. "Community housing" is "low and moderate income housing for individuals and families, including low or moderate income senior housing." "Low income housing" is defined as "housing for those persons and families whose annual income is less than 80 % of the area-wide median income," as determined by the United States Department of Housing and Urban Development. "Moderate income housing" is "housing for those persons and families whose annual income is less than 100 % of the area-wide median income," again as determined by the United States Department of Housing and Urban Development. "Low or moderate income senior housing" is "housing for those persons having reached the age of 60 or over who would qualify for low or moderate income housing." (All content from CPA Section 2.) As noted at the beginning of this Needs Assessment Report, since 2007 Town Meeting has approved $11,269,812 of CPA funding for community housing, including preservation projects at Greeley Village and Vynebrooke Village; the development of new affordable housing at Farmview (Lowell Street); the acquisition of 11 dwelling units by LexHAB; support for 16 living units at Douglas House;preservation of dwelling units at Pine Grove Village and funding of studies for future affordable housing needs. In 2017, CPA funds were combined with MassHousing funds to finance the conversion of the Pine Grove (Judges Way) cooperative to a condominium association, thereby preserving 16 units of low- and moderate-income housing. A portion of the CPA funding was used to convey the 5 low-income units to the Lexington Housing Authority. This project was highlighted in an article in Banker and Tradesman as on of the `success stories' of the state's efforts to preserve long- term affordability of multi-family housing facing expiring use restrictions. NEEDS AND RECOMMENDATIONS 9 Lexington continues to strive to maintain an economically diverse community, although it has become increasingly difficult to do so. It will continue to be necessary to draw on CPA funds to create additional affordable units. The Planning Board recently approved a 27 unit development on Grove Street, subject to the developer's commitment to make three units affordable. CPA funding could be used to purchase these and other affordable units as they become available under conditions imposed by the Planning Board on new developments. The Leary housing parcel purchased with CPA funds in 2009 provides an additional opportunity. The May 2011 Report of the Committee appointed by the Board of Selectment to develop housing options for the site provides a thoughtful starting point for bringing this project to fruition. The three LHA complexes are a major component of the Town's affordable housing inventory. With State funding in short supply, continued CPA funding of preservation efforts will be appropriate, if requested. CPA funds were combined with funding from the Massachusetts Department of Housing and Community Development to build four new handicapped accessible units at Greeley Village. There may be other LHA locations where construction of additional units would be feasible. For years, the lack of opportunities for down-sizing in Lexington has been identified as a major concern of residents. Given that current CPA guidelines allow for CPA support for community housing serving individuals earning less than 100% of the area AMI, it would seem that CPA support for new senior developments is warranted. 10 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 late 19th and early 20th century housing stock that continues to distinguish the Town. Structures of the recent past—Moon Hill, Five Fields, Turning Mill and the Peacock Farm enclaves throughout Town, among others —enhance Lexington's diverse architectural 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 (which includes the Battle Green), have been designated as National Historic Landmarks by the U.S. Secretary of the Interior for their role in the opening battle of the Revolutionary War. Ten additional properties are individually listed on the National and State Registers of Historic Places, in addition to the Town's listed National Register Historic 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 Mid-Century Modern Houses of Lexington Multiple Property Submission highlights the unique characteristics of Lexington's modern architecture. In total, approximately 600 properties are protected through inclusion within one of the four Town-established local historic districts (Battle Green, East Village, Hancock-Clarke, Munroe Tavern). The Town has recognized this wealth in its "Vision Statement: Fostering a Sense of Community." Prepared by the Vision 2020 group, the first vision listed was that of appreciation of the Town's history, through the "preservation and celebration of historic Town assets, including local events and interest points as well as Lexington's national attractions." And in the Planning Board's 2002 Comprehensive Plan, "The Lexington We Want," the authors recognized that the Town's stewardship responsibility to its Revolutionary War heritage has been executed "with effective care" but at the same time urged the adoption of a preservation plan that would rationalize preservation efforts throughout the Town. Lexington's history enhances its citizens' 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 for the nation's youth and for historical scholars, and bringing important tourist dollars to support the local economy. 11 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. 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. In addition, 2016 Spring Town Meeting approved enabling legislation to permit Neighborhood Conservation Districts upon application and approval of the requesting neighborhoods. Two such Districts, the Turning Mill Neighborhood Conservation District and the Pierce-Lockwood Neighborhood Conservation District, were approved by Town Meeting in Spring 2018. Historic Districts Commission (HDC) The Historic Districts Commission of Lexington was established in 1956 by Special Act of the Legislature to"promote the educational, cultural, economic and general welfare of the public 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 maintenance of said buildings, places and districts as landmarks of historic interest." The HDC 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 "for the preservation, protection and development of the historical or archeological resources" of 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 Town web site. The LHC administers the Town's 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's cultural heritage. The five members of the LHC and any alternates 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 been approved to self-regulate through an NCD: the Turning Mill Neighborhood and the Pierce-Lockwood Neighborhood, both at 2018 Spring Town Meeting. 12 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 the 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 and the site of"Parker's Revenge". Cary Memorial Library Finally, Cary Memorial Library, established in 1868 and occupying its current location since 1906 in a Willard D. Brown- designed local landmark, serves as an important repository of historic documents, books,photographs, and maps and other information about the history and growth of the Town. 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; 13 • Affect a site within a Lexington Historic District, on a State or National Historic Register, or eligible for placement on such registers, or on the Lexington Historical Commission's Cultural Resources Survey (the "Inventory"); • Demonstrate a specific public benefit; and/or • Provide permanent protection for maintaining a historic resource. 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 Secretary of the Interior's Standards for Rehabilitation (Department of Interior Regulations, 36 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 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 Lexington's 17th and 18th century homes, Mid- Century Modern homes, streetscapes and 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 Town's multigenerational Community Center. • 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 intended use, all completed in accordance with the Secretary of the Interior's Standards for Rehabilitation. Examples of past projects include the restoration of the exterior of the 14 Stone Building (the former 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 Lexington Community Center is now complete. Future projects could include restoration and rehabilitation of other buildings on the Battle Green and the interiors of the Hosmer Home ("White House") and the Stone Building, as well as restoration of and sensitive modifications for accessibility in the Lexington Center Streetscape. • Documentation, survey, conservation and restoration of historic landscapes, including historic burying grounds and monuments. Examples would be CPA-funded projects for creation of a Master Plan for the Battle Green, including restoration of the MinuteMan statue, and restoration of two of the Town's historic burying grounds. • 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. Many current Inventory forms date from the 1970s and contain incomplete or inaccurate information, and need updating to promote their long-term preservation. 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 online of the Town's Cultural Resources Survey, as well as a 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 additional reading about Lexington's history. Future projects could include the restoration and repair of the Tercentenary guidepost signs formerly located at key intersections across Town and. the creation of programs for the public to showcase the history and significance of homes and neighborhoods on the Cultural Resources Survey. • Preservation of historic documents and archival materials. The Town Clerk has evaluated, restored and digitized many of the Town's historic records in a multi-year project using CPA funding. The Lexington Historical Society and the Cary Memorial Library have similarly used CPA funds to conserve important Society records. 15 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,picnicking, and nature exploration. CURRENT RESOURCES The Town Conservation Commission is entrusted with promoting and managing the Town's natural resources, administering and enforcing the Massachusetts Wetlands Protection Act (M.G.L. c. 131 §40), Lexington's Wetland Protection Code (C. 130) and stormwater management regulations, and acquiring and managing open space. The seven—member Commission is appointed for overlapping three-year terms by the Town Manager with the approval of the Board of Selectmen. Out of approximately 10,650 acres, Lexington currently has more than 1,370 acres of conservation land, and approximately 400 acres reserved for recreation, including parkland. Town fiscal demands and restraints associated with Proposition 21/2 have been accompanied by the constant pressure of development, resulting in only one open space 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-landganchor_plan). The CPA has enabled the acquisition,protection, and enhancement of open space by providing funding in three important areas: For the outright purchase of land to be owned by the Town, for the purchase of permanent conservation or agricultural restrictions that provide protection to privately owned land, and for improvements to visitor access,passive recreational oppertunities, and resource protection and planning. 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 Leary and Wright Farm Parcels were both subdivided as part of the acquisition to also provide for community housing at each property. 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.)while the remainder has been designated for community 16 supported agriculture. Additional visitor access and resource preservation and protection improvements include land management planning for three CPA-funded properties, an ongoing conservation meadow preservation program, and visitor access improvements at Cotton Farm. NEEDS AND GOALS: The goals for open space include, but are not limited to the following: Protection, through acquisition or conservation restrictions, of 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 restrictions, 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: • Open spaces adjacent to existing conservation land; • Trail connections or access to conservation land; • Open spaces near schools, and • Open spaces accessible to people of all ages and abilities. 17 Improvements to the ecological, recreational, and educational values of all Town-owned conservation parcels. Projects appropriate for this purpose may include but are not limited to the following: • Land management planning • Accessibility,parking, and other visitor use improvements • Ecological preservation and natural resource protection 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. • The Town should conduct comprehensive land management planning and implement such plans to preserve ecological resouces and protect important natural resouces and to provide for universal accessibility to the Town's open spaces. 18 Town of Lexington Community Preservation Plan Recreation BACKGROUND The Recreation Committee's goal is to provide a wide range of quality programs and facilities for the broad spectrum of Lexington residents. The Recreation and Community Programs Department, supported by the Town Manager-appointed 5-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 tennis and basketball courts, Center Recreation Complex,Pine Meadows Golf Club, and the public swimming facilities at the Irving H. Mabee Town Pool Complex and Old Reservoir. 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 Golf Club, 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 Recreation Complex, bikeways, walking trails, the skate park, outdoor basketball courts, multi-use athletic fields, the Community Center campus, 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: • Preserve, rehabilitate, restore or add new recreational uses of and access to Lexington's natural and recreational resources; • Preserve, rehabilitate, restore and/or protect existing recreational facilities such as: the Irving H. Mabee Town Pool Complex, Old Reservoir, Pine Meadows Golf Club, 19 Community Center campus, tennis and basketball courts, Center Recreation Complex, 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; • Actively pursue the Inter-Municipal Agreement with Minuteman Regional Vocational Technical School District to increase stock of playing fields, tennis courts and walking trails; • 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 high quality, year round, accessible balance of recreation and leisure activities (active and passive, structured and unstructured, indoor and outdoor) 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 Community Center. RECOMMENDATIONS • Acquire and create additional athletic fields to meet the increasing needs of the community. • Acquire and create new active recreational resources, including playing fields and playgrounds, with special attention to universal access, as well as adult/senior and toddler recreational needs. • Increase recreational access/use of open spaces and natural resources (where appropriate), including areas for hiking, bicycling, cross-country skiing, and fishing. • Preserve, protect, and improve Lexington's recreational infrastructure through rehabilitation and restoration of existing recreation facilities as outlined in the Recreation 5-Year Capital Plan, the Open Space and Recreation Plan, the 2014-2016 Recreation Strategic Plan, and the 2017 Recreation Facilities and ADA Compliance Study. • Take 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 the Center Recreation Complex, Irving H. 20 Mabee Town Pool Complex, Old Reservoir, Pine Meadows Golf Club, and Community Center campus. • Actively pursue the Inter-Municipal Agreement with Minuteman Regional Vocational Technical School District. 21 Town of Lexington Community Preservation Plan Appendix A Plans, Documents and Studies BOARD OF SELECTMEN Selectmen's Goal Setting (annual documents 1997-2018). PLANNING BOARD • Design Guidelines for Commercial Districts, Volume L Public Improvements (1990) and Volume IL 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). Housing, Selectmen's Goal Setting (2005). Economic Development(1/2002). Transportation (6/2003). • Lexington Center Analysis. Taintor Associates, Inc., 2004. 22 • Marrett Road/Spring Street/Bridge Street Intersection Study Phase I(7/2005) and Phase II(5/2006). • Revised Zoning Map of Lexington 2016. • Lexington Center Streetscape Concept Plan. December, 2011. • Report of the Center Streetscape Design Review Ad Hoc Committee to the Lexington Board of Selectmen, January 19, 2017. • Comprehensive Report on a Plan for Lexington Center- Sasaki Report, February 1966. • 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, 2017-2021. 2020 VISION COMMITTEE • Visioning Reports, 2000 —2007. • Report of the Demographic Change Task force—Final, March 19, 2010. • Final Report on Town-Wide Survey, 2017. COMMUNITY HOUSING • Lexington Consolidated Housing Strategy (2006-2010). • Affordable Housing Subsidy Executive Summary, 2010. • Affordable Housing Subsidy Plan, 2010. • Lexington Housing Partnership and LexHAB "Affordable Housing Assistance Program" Design. January 20, 2010. • Lexington Housing Production Plan"Affordable Housing: Goals and Strategies for 23 Lexington," March 2014. HISTORIC PRESERVATION • Lexington Cultural and Historic Inventory (updated December, 2015), online at hllp:Hhistoricsurvey.lexin onma.gov. • "Lexington Reconnaissance Report for the Massachusetts Heritage Landscape Inventory Program," 2006. • Lexington Battle Green Area Master Plan, Town of Lexington, March 14, 2011, online at hllp://www.Iexinglonma.gov/battle-green-master-PIan. • History of Lexington Municipal Buildings, September 21, 2011, online at http:Hhistoricsurve. .l�gtonma.gov/municipal-buildings-rg2g t.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 hllp://www.lexinglonma.gov/hammond-hosmer-house-white-house/pages/historic- structures-report. • Cary Memorial Building Evaluation, Final Report, June 1, 2011, online at http:Hrecords.lexingtonma.gov/WebLink8/0/doc/226298/Page5.as2xx. • 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. 24 • 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. hllp://www.lexinglonma.gov/conservation/pies/conservation-land#anchor Dlan • Recreation 5-Year Capital Plan. • Recreation Strategic Plan, 2014-2016. • Recreation Facilities and ADA Compliance Study, 2017. • 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. • "Lexington Reconnaissance Report for the Massachusetts Heritage Landscape Inventory Program," 2006. DEPARTMENT OF PUBLIC WORKS • Town Maps 25 Town of Lexington Community Preservation Plan Appendix B Glossary Capital Improvements "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 "Low income 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. "Moderate income housing" - 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. "Low or moderate income senior housing" - 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, support 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. The State will provide "matching" funds to communities approving CPA by-laws, which Lexington did in 2006 at a 3% level. 26 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-accounts of CPF (sometimes referred to as "buckets") have been established to ensure that 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. 27 Community Preservation Surcharge Exemptions 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 "Historic resources" shall mean a building, structure, vessel, real property, 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 Bylaw A copy of the Bylaw can be obtained online at hllp://www.lexinglonma.gov/communiiy- pres ervati on-committee. Maintenance Incidental repairs which neither materially add to the value of the property nor appreciably prolong the property's life, but keep the property in a condition of fitness, efficiency or 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 "Preservation" shall mean protection of personal or real property from injury, harm or destruction. Recreational Use "Recreational use" shall mean active or passive recreational use including, but not limited to, the use of land for community gardens, trails, and non-commercial youth and adult sports, and the use of land as a park, playground or athletic field. "Recreational use" shall not include horse or dog racing or the use of land for a stadium, gymnasium or similar structure. 28 Rehabilitation "Rehabilitation" shall mean the capital improvements, or the making of extraordinary repairs to 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 codes; provided that with respect to historic resources, "rehabilitation" complies with the Standard for Rehabilitation stated in the United States Secretary of the Interior's Standards for the Treatment of Historic Properties codified in 36 CFR Part 68; and provided further, that with respect to land for recreational use, "rehabilitation" shall include the replacement of playground 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 "Support of Community Housing" shall 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. Approved by the Community Preservation Committee, December 13, 2018. Marilyn Fenollosa, Chair(Historical Commission) Richard Wolk, Vice-Chair, (Conservation Commission) Charles Hornig (Planning Board) David Horton (at large, appointed by the Board of Selectmen) Jeanne Krieger(at large, appointed by the Board of Selectmen) Joe Pato (at large, appointed by the Board of Selectmen) Robert Pressman (Housing Partnership) Lisah Rhodes (Recreation Committee) Melinda Walker(Housing Authority) 29