HomeMy Public PortalAboutBPPC Mtg Packet 8.16.22Town of Brewster
2198 Main St., Brewster, MA 02631
townadmin@brewster-ma.gov
(508) 896-3701
Revised Bay Property Planning Committee Meeting Agenda
2198 Main Street, Brewster, MA
August 16, 2022 at 4:00 PM
Pursuant to Chapter 107 of the Acts of 2022, this meeting will be conducted in person and via remote means, in accordance
with applicable law. This means that members of the public body may access this meeting in person, or via virtual means.
In person attendance will be at the meeting location listed above, and it is possible that any or all members of the public
body may attend remotely. No in-person attendance of members of the public will be permitted, and public participation
in any public hearing conducted during this meeting shall be by remote means only. Members of the public who wish to
access the meeting may do so in the following manner:
Please click the link below to join the webinar:
https://us02web.zoom.us/j/84863561303?pwd=bjhQazV3Y0NaN0dESk1LUmxmbGJCdz09
Passcode: 467353
US: +1 312 626 6799 or +1 929 436 2866 Webinar ID: 898 0232 5739 Passcode: 467353
When required by law or allowed by the Chair, persons wishing to provide public comment or otherwise participate in the
meeting, may do so by accessing the meeting remotely, as noted above. Additionally, the meeting will be broadcast live,
in real time, via Live broadcast (Brewster Government TV Channel 18), Livestream (livestream.brewster-
ma.gov), or Video recording (tv.brewster-ma.gov).
Members:
Amanda Bebrin,
Chair
(Vision Planning
Committee)
Katie Miller Jacobus,
Vice Chair
(At Large)
Karl Fryzel,
Clerk
(At Large)
Mary Chaffee,
Select Board
Ned Chatelain,
Select Board
Patricia Hughes,
Natural Resources
Commission
Peter Johnson,
At Large
Caroline McCarley,
At Large
Clare O’Connor-
Rice, At Large
John Phillips,
At Large
Tom Wingard,
Recreation
Commission
Town Staff:
Peter Lombardi,
Town
Administrator
1.Call to Order
2.Declaration of a Quorum
3.Meeting Participation Statement
4.Recording Statement
5.Public Announcements and Comment: Members of the public may address the Committee on matters
not on the meeting’s agenda for a maximum 3-5 minutes at the Chair’s discretion. Under the Open Meeting Law, the
Committee is unable to reply but may add items presented to a future agenda.
6.Update on Solicitation for Consulting Services
7.Update on Beach Operations & Upcoming Summer Events
8.Update on Amended Bay Property Planning Committee Charge & New
Liaisons/Representatives
9.Update on Potential Recreation Uses – Mike Gradone, Recreation Director
10.Presentation on 2022-2027 Housing Production Plan, Update on Current Housing
Initiatives, and Overview of Potential Housing Opportunities – Jill Scalise, Housing
Coordinator
11.Discuss Potential Interim Uses
12.Discuss Potential Bay Property Video
13.Vote on Meeting Minutes: June 29 & July 19, 2022
14.Discuss Future Meeting Agenda Items
15.Next Meetings: September 13 and September 27, 2022
16.Matters Not Reasonably Anticipated by the Chair
17.Adjournment
Date Posted:Date Revised:Received by Town Clerk:
08/08/2022 08/11/2022
Town of Brewster
2198 Main Street
Brewster, MA 02631-1898
Phone: (508) 896-3701
Fax: (508) 896-8089
Office of:
Select Board
Town Administrator
MEMORANDUM
RE: Sea Camps Planning Committees
DATE: December 20, 2021; Revised January 10, 2022; Revised August 8, 2022
At their December 20, 2021 meeting, the Select Board unanimously approved the
following charges for the two new planning committees tasked with developing
Comprehensive Plans for the former Cape Cod Sea Camps properties. At the January
10th, 2022 Select Board meeting, the charge was updated to include a member of the
Water Commission as a voting member instead of a liaison. At the August 8, 2022
Select Board meeting, the charge was updated to remove language in the BPPC
committee's purpose regarding evaluating alternative uses of Council on Aging site,
Town Hall, and/or Eddy School.
Bay Property Planning Committee (BPPC)
1. Purpose:
a.Identify existing conditions of the former Cape Cod Sea Camps Bay
property
b.Evaluate potential low-cost, short-term public access opportunities
c.Develop and propose interim public access plan
d.Develop and implement a public engagement strategy to ensure broad
community input
e.Determine priority long-term uses appropriate for the Bay property, taking
the adjacent Spruce Hill property into consideration
f.Identify and evaluate potential partner organizations with shared interests
and values, particularly MA Audubon and YMCA Cape Cod
g.Propose recommended long-term uses and partnerships
h.Develop an implementation plan for the proposed uses
2. Strategies:
a.Actively engage the public and stakeholders
b.Provide residents with regular updates regarding progress and milestones
c.Consider a range of interests, needs, ages, and abilities
d.Collaborate with design professionals to develop and present a
comprehensive plan to the Select Board and Town Meeting
i.Consider Brewster’s key strategic planning documents (Vision Plan,
Open Space and Recreation Plan, Coastal Resource Management
Plan, Housing Production Plan, and others)
ii.Incorporate maintenance, safety, and legal requirements
iii.Identify estimated one-time project costs, ongoing operating
expenses, funding sources, and timelines, incorporating prudent
financial practices and exploring opportunities for revenue
generation
3. Composition:
Eleven (11) total members, including:
a.Two (2) representatives from Select Board (Select Board Chair shall not be
eligible)
b.One (1) representative from each of the following committees:
Vision Planning Committee; Natural Resources Commission;
Recreation Commission
c.Six (6) at-large members (may be part-time residents)
d.Term: One (1) year, subject to annual reappointment; first term through
June 30, 2023
e.Officers: Committee shall initially and annually thereafter elect a Chair,
Vice Chair, and Clerk; Chair position shall not be held by a Select
Board member; Chair and Vice Chair will meet on quarterly basis with
their counterparts on PPPC to ensure coordination
f.Liaisons (non-voting): Finance Committee; Open Space Committee;
Council on Aging; Affordable Housing Trust; Cultural Council
g.Representatives (non-voting): MA Audubon, YMCA Cape Cod, and
Brewster Conservation Trust; other organizations such as Trustees of
Reservations, etc may be included as needed
h.Lead Town Staff Support: Town Administrator; other Department Heads
as needed
4. Appointment Process:
a.Notice soliciting letters of interest and completed applications from
residents will be posted on Town website – due January 21, 2022
b.Residents seeking to serve as at-large members will be asked to complete
new Board/Committee application form
c.Members of representative committees will be asked to submit letters of
interest
d.Select Board members appointed to serve on BPPC will individually vet all
applicants (at-large and representative members) and then make their
recommendations to the full Board in February
e.Select Board are anticipated to make all appointments by the end of
February
f.Committees and outside organizations may identify their own
liaisons/representatives
5. Selection Criteria:
In addition to the criteria outlined in the Select Board’s recently revised Board &
Committee Appointment Policy, Select Board members will also take into
account the following criteria in selecting members to serve on this committee:
a. Record of effective teamwork ability; able to collaborate well with others
to achieve common goals
b. Experience in community planning, municipal activities, project
management, equity and inclusion, conservation/environment,
park management, sustainability, historic preservation, recreation,
public finance, (landscape) architecture, youth services, human
services, engineering, community housing, and/or law
c. Excellent written and verbal communication skills
d. Previous volunteer service
e. Sufficient time to actively participate in meetings and take on tasks
outside of meetings
4 August 2022
Mr. David Whitney, Chair
Town of Brewster Select Board
2198 Main Street
Brewster, MA 02631
Dear Mr. Whitney:
The intent of this letter is to notify the Town of Brewster Select Board that the Brewster Conservation
Trust’s Bay Property Planning Committee (BPPC) representative, Debra Johnson has requested to step
down from the committee. As such, the Board of Trustees of the Brewster Conservation Trust have
appointed Steve McKenna to represent the Trust as the new non-voting representative on the BPCC.
For BPCC communication purposes only here is Steve’s contact information:
Steve McKenna
757 Slough Road
Brewster, MA 02631
Cell: 508-364-4784
stephen.mckenna@state.ma.us
In addition, both Tino Kamarck and myself will continue to serve as Alternate Representatives, to
substitute for the designated representative if he is unable to attend a meeting.
Please let me know if you need any additional information. On behalf of the Trust, thank you again for
the opportunity to participate in this exciting process.
Respectfully,
Amy Henderson
Executive Director
Cc: Peter Lombardi
Archive d: Friday, August 12, 2022 8:22:06 AM
From: Erika Mawn
Se nt: Thu, 28 Jul 2022 13:59:35 +0000Authentication
To: Amanda Bebrin- BPPC
Cc: Peter Lombardi
Subje ct: FW: Bay property board member/ Liaison
Se ns itivity: Normal
Morni ng,
Please see the be l ow note regardi ng the COA liaison to the BPPC.
Thank you,
Erika
Erika Mawn
Executi ve As s i s ta nt to the Town Admi ni s tra tor
2198 Ma i n Street Brews ter, MA 02631
(508) 896-3701 ext. 1100
www.brews ter-ma .gov
Brewster Town Offices are open to the public Monday - Thursday from 8:30 to 4:00pm, and by appointment on Fridays. For the latest updates on Town services,
please visit www.brewster-ma.gov
From: Denise Re go <dre go@brewster-ma.gov>
Sent: Thursday, Jul y 28, 2022 9:44 AM
To: Erika Mawn <e mawn@brewster-ma.gov>
Cc: Sharon Tennste dt (slte nnstedt@gmail.com) <slte nnstedt@gmail.com>
Subject: Bay prope rty board member/ Liaison
Hi Erika,
Our COA liai son to the Bay property was Janet Stolzer.
She changed job and can no l onger be a COA Board Me mbe r & liai son to the Bay Property Board.
We are l ooking for anothe r COA Board Member.
In the me anti me , Sharon Tennstedt (sltennstedt@gmai l .com) will be our liai son.
Let me know if you have any questi ons about this.
Thanks, De ni se
From: Sharon Tennste dt <sltennstedt@gmail.com>
Sent: Tuesday, July 26, 2022 8:49 PM
To: De ni se Rego <drego@brewster-ma.gov>
Subject: Li aison
Hi , woul d you noti fy whoe ver it is that I'll be the COA l i aison to the Bay Planni ng Commi tte e .
Thanks,
Sharon
TOWN OF BREWSTER
2298 MAIN STREET
BREWSTER,MA 02631
PHONE:(508)896-9430
WWW.BREWSTERRECREATION.COM
WWW.TOWN.BREWSTER.MA.US
OFFICE OF
RECREATION COMMISSION
August 11, 2022
Dear members of the committee,
The Brewster Recreation Department would like to suggest some
programs for the Bay property, at the former Cape Cod Sea
Camps. During the summer months we have run two outdoor
movie nights and will be hosting the Brewster Band as well as a
touch-a-truck event in late August. So far we have had no
problems with any logistics. With help from the CERT team and
various other town departments, these events have been a great
success.
Because of the success of the first few events, we would like to
continue this into the fall and beyond. Here is a list of some ideas
that the Rec Dept. had in mind for the next year:
Fall 2022
Host a local Boy Scout troop for a night of camping. If there are
any service projects that can be done on the property, we would
ask the troop to help.
Lower Cape soccer jamboree for the 3-6 grade recreation soccer
teams.
Winter 2022/2023
Snowshoe hike around the Bay property. (Rec dept rents
snowshoes if needed)
DIY Christmas craft project in the Arts building.
Spring 2023
Saturday morning Senior Striders. Partner with COA and open
up the First Light Beach driveway for seniors to walk.
Brewster in Bloom craft show.
*We will also need to start considering what we are going to do in
the summer with the pool as well as the Rec Dept. Summer
Playground Program.
I hope you will consider some of these programs so that we can
take full advantage of this fantastic property. Thank you for your
consideration.
Mike Gradone
Recreation Director
Town of Brewster
Brewster Community Housing:
An Overview
AUGUST 16, 2022
JILL SCALISE, BREWSTER HOUSING COORDINATOR
Housing program is guided by the
Housing Production Plan 2017
Recently completed…
2022 Housing Production Plan Update
Brewster Vision Plan 2018
Coming soon…
Brewster Local Comprehensive Plan
(LCP)
The Housing Plan update will be a
component of the LCP.
Housing Needs Assessment
Housing Goals
Implementation Strategies
•Demographics
•Projection of future population and housing needs
•Housing stock
•Development constraints & plans to mitigate
•Infrastructure capacity
•Mix of housing types feasible within market and
affordable to a range of income levels
•Numerical housing production goals
•Proposed zoning or policy changes
•Site identification for housing
•Desired characteristics of development
•Regional partnerships
BREWSTER HOUSING PRODUCTION PLAN 2022 UPDATE
NEEDS ASSESSMENT HIGHLIGHTS
BREWSTER HOUSING PRODUCTION PLAN 2022 UPDATE
1,790
5,226
8,440
10,094 9,820 10,318
9,786 9,266
7,863
0
2,000
4,000
6,000
8,000
10,000
12,000
1970 1980 1990 2000 2010 2020 2030 2040
Year
Total Population: Past Trends and Future Projections
Sources: US Decennial Census, 1970-2020, MassDOT Population Projections, 2018
Population (Actual)Population (Projected)
-3%-4%
-7%
8%
2%
-3%
-1%
-7%
8%
2%
-3%
-1%
-7%
7%
1%
-2%
-1%
-4%
5%
0%
-8%
-6%
-4%
-2%
0%
2%
4%
6%
8%
10%
Percent Change in Population by Age, 2010-2020
Source: ACS 5-Year Estimates, 2006-2010 and 2016-2020, Table B01001
Brewster Lower Cape Barnstable County MA
Under 18 Years 18 to 34 Years 35 to 54 Years
55 to 74 Years Over 75 Years
0%
5%
10%
15%
20%
25%
Household Income for Brewster Households, 2010-2020
Source: ACS 5-Year Estimates, 2006-2010 and 2016-2020
2010 2020
-3%-4%
-7%
8%
2%
-3%
-1%
-7%
8%
2%
-3%
-1%
-7%
7%
1%
-2%
-1%
-4%
5%
0%
-8%
-6%
-4%
-2%
0%
2%
4%
6%
8%
10%
Percent Change in Population by Age, 2010-2020
Source: ACS 5-Year Estimates, 2006-2010 and 2016-2020, Table B01001
Brewster Lower Cape Barnstable County MA
Under 18 Years 18 to 34 Years 35 to 54 Years
55 to 74 Years Over 75 Years
21%20%
75%70%
87%
26%
49%
17%21%
13%53%31%8%9%
1%
0%
20%
40%
60%
80%
100%
Extremely Low Income
(Up to 30% HAMFI)
Very Low Income
(31-50% HAMFI)
Low Income
(51-80% HAMFI)
Moderate Income
(81-100% HAMFI)
Median Income or Higher
(≥100% HAMFI)
Housing Cost Burden by Income Level - All Households
Source: CHAS, 2014-2018
No Cost Burden Cost Burden 31%-50%Cost Burden > 50%
Brewster’s Housing Context
Brewster Housing Stock: 46% owner occupied, 8% renter occupied, 46% seasonal/ vacant (American Community Survey)
(MA Housing Stock: 57% owner occupied, 34% renter occupied, 9% seasonal/ vacant)
- Since the pandemic, Brewster is experiencing a reduction in year-round rental housing correlating with an increase in home prices
2019 Median Brewster Home Sales Price- $415,000 2020 Median Brewster Home Sales Price- $470,000 (Cape & Islands Assn. of Realtors)
2022 Median Brewster Single Family Home Sales Price = $710,000
•A home affordable at the Area Median Family Income which is $115,600 would = $420,579. This is a -$289,421 affordability gap.
Affordable Housing:
Affordable units on the Subsidized Housing Inventory (SHI) – 297 units
6.2 % of year-round housing, MA mandates 10% affordable of year-round housing stock.
Certified Housing Production Plan, because 27 affordable units created in past year.
Brewster Housing Authority- 56 apartments, state subsidized housing , up to 80% Area Median Income (AMI), 10+ year wait list
Wells Court- 24 apartments, senior housing, up to 50% AMI, multi-year wait list
King’s Landing- 108 apartments , up to 80% AMI, 5+ year wait list
Serenity Apartments- 132 age 55+ apartments, 27 affordable at 80% AMI. Currently leasing affordable units from lottery list.
11
HPP QUALITATIVE GOALS
•GOAL 1. Increase and diversify year-round housing options in Brewster for
a range of income levels and household types.
•GOAL 2. Prevent displacement of current residents and facilitate housing
mobility for households looking to move within or into Brewster.
•GOAL 3. Align development with the principles of the Town’s Local
Comprehensive Plan/Vision Plan.
•GOAL 4. Continue to build capacity to produce housing through staffing,
funding, regional partnerships, advocacy and education, and relationships
with nonprofit and for-profit developers.
12
HPP QUANTITATIVE GOALS
IMPLEMENTATION TABLE
Implementation Strategies
1
Funding & Assets
Continue to work with nearby communities on the Cape by
#7 pooling CPA funds and other resources to construct affordable
housing in suitable locations throughout the region and meet
regional housing needs.
#8 Develop a five-year financial plan for the BAHT and determine
whether additional funding streams should be explored.
#9
Based upon the BAHT five-year financial plan, explore other
funding opportunities to support housing initiatives at a range
of income levels.
Explore local property tax incentives for the creation of
#1.0 affordable housing, such as offering a reduction of property
taxes to an owner renting an affordable unit.
#13
Develop criteria for assessing a property's suitability for the
creation of affordable and attainable housing.
Inventory existing Town -owned land using the criteria
developed to determine suitability for housing: develop and
issue an RFP for the development of affordable and attainable
housing on properties identified as suitable for housing
development.
If deemed necessary based upon the findings of the Town -
owned land inventory, develop and issue an RFP for the
acquisition of privately held land for the creation of affordable
and attainable housing.
Lead
POTENTIAL
Res'onsible Entities
Support
CPC
TA
HC
SB
BAHT & Finance
(FT) Team & SB
BAHT, CPC. FT. SB,
TA & HC
SB
TA
Finance
Planning
HC
BAHT
Building
Health
Planning
HC
TA
BAHT
Cons Comm
BAHT
TA
HC
BHP
BAHT
HC
CPC
Assessor
HC
BAHT
Cons
Comm,
Open Space
TA, SB
Assessor
SB
Open Space
Planning
SB
POTENTIAL
Time Frame
TBD
Ongoing
First
(In process)
After #8
TBD
First
After #11
Follow-up to
2017 HPP
Strategy #
#9
#7
#7
#8
#15
#15
Meets DHCD
Guidelines for
HPP Strategies
After #12 ✓
Education & Advocacy
Implementation Strategies
POTENTIAL
Res • onsible Entities
Lead
Support
POTENTIAL
Time Frame
TBD
Follow-up to
2017 HPP
Strategy #
Meets DHCD
Guidelines for
HPP Strategies
#14
#15
Develop a collaborative housing education plan that connects
to the Town's Local Comprehensive Plan (LCP).
Continue to ensure regular participation by staff and members
of Town bodies in available trainings on housing -related issues
including fair housing, local and regional housing needs,
comprehensive permit administration, and other relevant
topics.
Local Policy & Planning Strategies
#16
#17
Continue to make good use of 40B, including the Local
Initiative Program (LIP). as a vehicle for creating affordable
housing.
Encourage public/private partnerships to facilitate the
collaborative production of affordable housing to meet a range
of community needs.
Continue to monitor the impacts of short-term rentals on the
#18 availability of year-round rental units; review and consider
changes to local policies accordingly.
Increase housing staff capacity to ensure continued and TA Interdepartmental:
#19 consistent collaboration with the Building, Conservation, Finance Building TBD #12
Health, and Planning Departments. HC Planning
BAHT
BHP
HC
HC
BAHT
BHP
BHP
BAHT
HC, TA
BAHT
BHP
HC
TA
SB
Finance
TA
Vision
BHA
COA
Planning
CPC
ZBA
SB
Finance
SB
ZBA
CPC
SB
Planning
CPC
BAHT
HC
Early
(In process)
Ongoing
Ongoing
(Brewster
Woods,
Habitat)
TBD
Ongoing
#13 & #16
#13
#14
J
Implementation Strategies
POTENTIAL
Res • onsible Entities
Support
POTENTIAL
Time Frame
TBD
Follow-up to
2017 HPP
Strategy #
Meets DHCD
Guidelines for
HPP Strategies
Community Resources & Local Support
#20
#21
Continue the CDBG-funded housing rehabilitation program to
enable income -eligible homeowners to make critical home
repairs.
Evaluate current CPC -funded housing initiatives and consider
adjusting to meet current needs.
Explore other opportunities for direct support for eligible
#22 households, including partnerships with local non -profits and
housing assistance providers.
Notations:
BAHT- Brewster Affordable Housing Trust
BHA- Brewster Housing Authority
BHP- Brewster Housing Partnership
COA- Council on Aging
CPC- Community Preservation Committee
Cons Comm- Conservation Committee
HC
TA
Finance
Building
BAHT
CPC, SB
HC
HC
BHP
BAHT
SB
BHP
COA
CPC
BHA
FT- Finance Team
HC- Housing Coordinator
SB- Select Board
TA- Town Administration
ZBA- Zoning Board of Appeals
Ongoing
Early/
Ongoing
(Discussed)
TBD
BREWSTER CURRENT INITIATIVES Create – new building & reuse
Preserve
Support
Creation of Rental Housing:
Brewster Woods
30 apartments: affordable 1, 2 & 3 bedroom
Housing Authority property, RFP & lease
Received Comprehensive Permit April 2018
Funding:
$550,000 in CPA funding approved May 2017
MassWorks Grant, received 1.68 million dollars 2019
$250,000 HOME funds approved
Presently under construction, opening Fall 2022
240+ applicants for lottery, 70% local preference
Preservation of Affordable Housing (POAH) & Housing Assistance Corporation (HAC)
Redevelopment of a vacant building:
Serenity Apartments at Brewster
Age 55+ rental housing, 132 apartments.
Assisted living & nursing home closed in 2019.
Purchased by Elevation Financial Group, LLC
Phase 1: First 41 studio apartments opened in July
2021, all leased by September 1.
Phase 2: 91 apartments, a mix of studio & 1-
bedroom units, opened August 2022.
27 affordable apartments in Phase 2. 20% of all
units. Lottery held in July 2022.
These Local Action Units (LAU) are included now
on Brewster’s SHI.
Habitat for
Humanity
Red Top Road
Land donated by resident
2 homes will be built, expected to begin construction in 2023.
Local Initiative Program (LIP)
Comprehensive Permit Application approved by Zoning Board of Appeals (ZBA) & CPA funding.
Coordinated with Town Water
Creation of Rental Housing:
Off Millstone Road
16+ acres of Town owned land designated for community housing. CPA
funds used to purchase access parcel in 2018.
Housing Trust, with a grant from Mass Housing Partnership, completed a
feasibility process including community engagement, and released a
Request for Proposals (RFP) in Fall 2021.
In April 2022, proposal accepted to build a compact, energy efficient
neighborhood of 45 affordable rental homes.
Next step- complete execution of Land Development Agreement with
Preservation of Affordable Housing & Housing Assistance Corporation.
Developers have applied for a Project Eligibility Letter which is required
before beginning the Comprehensive Permit process.
Preservation of SHI Housing
(Subsidized Housing Inventory)
212 Yankee Drive
Affordable home that was vacant forover 5 years and has significant water damage.
Town now has possession of property
Oversight by Affordable Housing Trust
Housing Trust has a CPA grant for the preservation of SHI homes.
Trust creating Scope of Work for preservation of home
After repairs, the home will be resold to an affordable home buyer.
Resident Support:
Preservation of Community Homes
Community Development Block Grant (CDBG) for Housing Rehabilitation & Childcare
Housing Rehabilitation
For critical home repairs
Up to $50,000 forgivable loan available
80% Area Median Income (AMI) for eligibility
Childcare Vouchers
To assist families in seeking or maintaining employment
Up to $6,000 per child
80% AMI for eligibility
Resident Support:
Brewster Rental Assistance Program
Program managed by Housing Assistance Corporation (HAC)
Up to $500 per month rental assistance
Household income below 80%AMI & paying more than 30% of income on housing.
Meets ‘rent reasonableness’ determination for Barnstable County
Lease payments made directly to landlord
Participants also receive case management
Emergency rental assistance component for households impacted by Covid-19
Affordable Housing Trust initiative financed with CPA funding
Community Creation of Rental Housing:
Accessory Dwelling Unit (ADU) Bylaws
& Accessory Apartments
Bylaw changed at Fall 2018 Town Meeting to allow ADUs by right or by special permit.
Commercial Accessory Apartments also allowed by special permit.
Approximately 16 apartments have been permitted. (This does not mean completed or rented.)
Resources
Lower Cape Housing & ADU Resource Center
Community Development Partnership & Homeless Prevention Council
www.lowercapehousing.org or referralshppccapecod.org or 508-255-9667, ext. 10
My Home Plus One ADU
Housing Assistance Corporation
My Home Plus One ADU Program - Housing Assistance Corporation Cape Cod (haconcapecod.org)
Bay Parcel
EXPLORING INTERIM HOUSING POSSIBILITIES
IN THE CONTEXT OF THE BREWSTER HOUSING PROGRAM
Bay Parcel
Tour with Property Manager, Ed Barber
Description of most structures
Visited over 10 buildings on the parcel
Interim Possibilities to Consider
Housing Context
•Low rental inventory
•Few opportunities for housing
for 80% - 120% AMI
•Need for housing for Brewster
based year-round workers
•Requests for assistance finding
housing for Town employees.
•Regional need for housing
•Additional need for seasonal
housing for summer workers
Housing Types
•Year-round housing
•Seasonal housing for Town
•Seasonal housing for greater
community
Considerations
Building Code Requirements
Accessibility
Groundwater Discharge
Change in use will trigger a re-
evaluation of permit
Rehabilitation
Property management &
oversight
Insurance
Location on parcel
Impact on other purposes
Types of housing & general locations
(Most appropriate for any interim use)
Year-round housing
•Pool area (Southeast)
•Several properties with 2-
bedroom apartments in pool
area of property that could
be appropriate.
•Beach area (North)
•One bedroom cottage near
the bay
Seasonal housing
•Pool area
•Two 1-bedroom cottages
•Congregate housing
•Beach area
•One 1-bedroom cottage
Seasonal housing
•Would require management
with an on-site presence.
•Entrance area (Southwest)
•One 1-bedroom cottage
•Congregate house
Questions?
JILL SCALISE
JSCALISE@BREWSTER-MA.GOV
508-896-3701 EXT. 1169
Housing Production Plan 2022-2027
ADOPTED BY THE BREWSTER SELECT BOARD AND PLANNING BOARD ON JULY 11, 2022
In Compliance with 760 CMR 56.03(4)
Prepared for:
The Town of Brewster
by:
Barrett Planning Group LLC
Town of Brewster
Housing Production Plan
2022-2027
Brewster Housing Production Plan, 2022-2027
BREWSTER HOUSING PARTNERSHIP
Jillian Douglass, Chair
Lisa Forhan
Vanessa Greene
Ralph Marotti
Diane Pansire
Sarah Robinson
Steve Seaver
TOWN STAFF
Jill Scalise, Housing Coordinator
Donna Kalinick, Assistant Town Administrator
Jon Idman, Town Planner
Peter Lombardi, Town Administrator
CONSULTANT TEAM
Barrett Planning Group LLC
Judi Barrett, Principal-in-Charge
Alexis Lanzillotta, Project Manager
BREWSTER SELECT BOARD
David Whitney, Chair
Cynthia Bingham
Mary Chaffee
Ned Chatelain
Kari Hoffmann
BREWSTER PLANNING BOARD
Madalyn Hillis-Dineen, Chair
Amanda Bebrin
Charlotte Degen
Tony Freitas
Rob Michaels
Elizabeth Taylor
Alex Wentworth
Past Members
Paul Wallace, Chair
Mark Koch
Town of Brewster
Housing Production Plan
2022-2027
Table of Contents
INTRODUCTION ................................................................................................................................................................ 1
Why Prepare This Plan? ................................................................................................................................................................... 2
Defining “Affordable Housing” ...................................................................................................................................................... 3
Components of a Housing Production Plan ............................................................................................................................. 4
Community Engagement Process ................................................................................................................................................ 4
A Note on Data Sources ................................................................................................................................................................... 5
HOUSING NEEDS ASSESSMENT .................................................................................................................................. 7
Key Findings .......................................................................................................................................................................................... 7
Demographic Profile ......................................................................................................................................................................... 8
Housing Characteristics ................................................................................................................................................................ 22
Housing Market ................................................................................................................................................................................ 30
Housing Affordability ..................................................................................................................................................................... 34
Barriers to Development .............................................................................................................................................................. 41
HOUSING PRODUCTION PLAN GOALS ................................................................................................................. 56
Brewster’s Housing Goals ............................................................................................................................................................ 56
Alignment with Regional Goals .................................................................................................................................................. 58
HOUSING PRODUCTION PLAN STRATEGIES ..................................................................................................... 59
Progress Since 2017 ....................................................................................................................................................................... 59
Looking Forward: 2022-2027 Strategies ............................................................................................................................... 60
Approach to Implementation ...................................................................................................................................................... 62
Strategies Explained ....................................................................................................................................................................... 66
APPENDICES .................................................................................................................................................................... 76
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Town of Brewster
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Introduction
The Town of Brewster consists of about 22.5
square miles of land, over 2,000 acres of
freshwater ponds, and miles of both coastal and
freshwater shorelines. Along with the Towns of
Orleans, Chatham, and Harwich, Brewster is
part of the Lower Cape region (see Map 1) and is
also bordered by the Town of Dennis to the west.
Brewster is defined by its identity as a small
coastal community, primarily from its northern
border along Cape Cod Bay, although the Town
also has forty feet of frontage along Pleasant Bay
to the south. Both the Town’s 2021 Open Space
and Recreation Plan and 2018 Vision Plan
highlight the Town’s rural character and notable
assets including its rich scenic and historic
heritage, beaches, Cape Cod Bay, ponds, and
open space resources.
Many of the conditions that existed when
Brewster prepared its last Housing Production
Plan (HPP) in 2017 remain true today,
particularly in terms of infrastructure capacity,
environmental considerations influenced by
Brewster’s significant marine and freshwater
water resources, and the Zoning Bylaw’s
limitations on the types and density of housing
that can be built. Nonetheless, the Town has made significant strides implementing its last HPP, most
notably:
ü Hiring a Housing Coordinator in 2017;
ü Establishing the Brewster Affordable Housing Trust in 2018;
ü Adopting the Town’s current Accessory Dwelling Unit (ADU) and Accessory Commercial
Dwelling Unit (ACDU) bylaws in 2018; and
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ü Issuing a Request for Proposals (RFP) for the development of over sixteen acres of Town-
owned land off Millstone Road.1
Other major factors influencing — or influenced by — Brewster’s housing needs include:
The Seasonal Housing Market. As of 2020, an estimated 42 percent of Brewster’s housing stock was
used for seasonal’, recreational, or occasional use compared to 38 percent for Barnstable County as a
whole.2 This marks an increase of over 6 percent since 2010 for the Town, which continues to
exacerbate the challenge of finding year-round rental housing. Together, year-round residents,
seasonal workers, and vacationers compete for the inadequate supply of affordable housing that exists
in Brewster.
Older Population. Brewster’s population is older, with a median age of 56.5 years as opposed to 53.7
years for Barnstable County and 39.6 years for the state.3 Accordingly, a larger share of Brewster
householders are retired than at county and state levels, and have higher retirement incomes on
average, as well.4
Growing Income Inequality. Both American Community Survey (ACS) data and Comprehensive
Housing Affordability Strategy (CHAS) data indicate an overall decrease in households with low and
moderate incomes, and a corresponding increase in households with higher incomes. Specifically,
between 2010 and 2018, the percentage of households earning at or below the Household Area Median
Family Income (HAMFI) decreased by 4.5 percent, and households earning above the HAMFI
increased by 4.8 percent.5 However, this wealth increase is not equally felt across Brewster households,
with two census block groups meeting the criteria for 2020 Environmental Justice (EJ) Population
designation based upon lower household income levels.6
Preserved Open Space. About one third of Brewster’s land is considered protected open space. The
achievements of the Town and open space organizations have contributed to Brewster’s beauty and
environmental quality, while also influencing where future housing development is likely to occur.
WHY PREPARE THIS PLAN?
This Housing Production Plan has been prepared to meet all the requirements of a Housing
Production Plan under state regulations and the guidelines of the Massachusetts Department of
Housing and Community Development (DHCD).7 The main purpose of a Housing Production Plan is
1 The “Housing Strategies” section of this plan provides a more complete list of accomplishments since the 2017 HPP.
2 American Community Survey (ACS) 5-Year Estimates, 2016-2020, Table 25004.
3 ACS 5-Year Estimates, 2016-2020, Table B01002.
4 ACS 5-Year Estimates, 2016-2020, Tables B19059 and B19069.
5 Comprehensive Affordability Strategy (CHAS) data, 2010 and 2018. (2018 is the most recent year for which this dataset is
available).
6 Environmental Justice Population designation criteria are described further in the Needs Assessment of this plan.
7 G.L. c. 40B, §§ 20-23 and 760 CMR 56.00.
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to help a community make steady progress toward the 10 percent statutory minimum under Chapter
40B, i.e., that 10 percent of total year-round housing units will be deed-restricted to be affordable for
low- or moderate-income households. Whether a community has reached the 10 percent minimum is
determined by the Chapter 40B Subsidized Housing Inventory (SHI), a periodically updated list of all
affordable units recognized by DHCD. To be included on the SHI, a unit must be:
• Affordable to households with incomes at or below 80 percent of the HAMFI, also commonly
referred to as the Area Median Income, or AMI. For Brewster, this designated area defining
the AMI is the Barnstable County Fair Market Rent (FMR) Area, determined by the U.S.
Department of Housing and Urban Development (HUD);
• Approved by a housing subsidy agency as eligible for a comprehensive permit or as “Local
Action Units” (i.e., developed without a comprehensive permit);
• Protected by a long-term affordable housing restriction; and
• Marketed and sold or rented under a DHCD-compliant Affirmative Fair Housing Marketing
Plan (AFHMP).
A completed Housing Production Plan requires approval by DHCD for a town to rely on it as a later
basis seeking plan certification. While many types of housing needs may be considered, the primary
purpose of the Housing Production Plan is to help communities reach the 10 percent statutory
minimum under Chapter 40B.
DEFINING “AFFORDABLE HOUSING”
In this Housing Production Plan, the term “affordable housing” means housing that low- or moderate-
income individuals and families can afford while also meeting their other basic needs: food, health
care, transportation, utilities, and essential goods and services. Of course, households with higher
incomes have trouble finding housing in Brewster and elsewhere in the Lower Cape and Barnstable
County, too — a strong indicator that the region’s housing supply is out of balance with demand.
Housing affordability in a general sense refers to macrolevel relationships between the cost of housing
and household incomes. Affordable housing, by contrast, has a specific regulatory meaning and is
customarily used in reference to households with low or moderate incomes. For Brewster and all its
neighbors, “low- or moderate-income” refers to income limits set annually by HUD. The
Commonwealth of Massachusetts uses HUD’s income limits to determine eligibility for income-
restricted housing developed under Chapter 40B. As a result, most housing called “affordable
housing” in federal, state, or local laws, ordinances, and bylaws is based on this consistent framework.
Since Brewster’s Housing Production Plan is required to conform with the Department of Housing
and Community Development’s (DHCD) Chapter 40B regulations, the primary (but not exclusive)
focus is low- and moderate-income housing.
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COMPONENTS OF A HOUSING PRODUCTION PLAN
A Housing Production Plan begins with a housing needs assessment, which describes a community’s
housing needs using data from sources such as the Town, the U.S. Census Bureau, housing market
reports, municipal records, and community interviews. In addition, the needs assessment will explore
constraints to development and plans to mitigate these constraints where possible. Building upon this
analysis of housing needs and potential barriers to further housing development, the Housing
Production Plan sets a series of qualitative and quantitative affordable housing goals. Based on these
goals, the plan lays out implementation strategies. State regulations (760 CMR 56.03[4]) and DHCD
Comprehensive Permit guidelines describe the specific requirements for each component of an HPP,
outlined in Figure 1 below.
COMMUNITY ENGAGEMENT PROCESS
The Town provided multiple opportunities for participation by local officials and the community at
large. The planning process was guided by a Community Engagement Plan that consisted of the
following components:
Regular Housing Partnership Meetings. The Housing Partnership met monthly from February 2022
through June 2022 to discuss the development of this plan with Town staff and the consultant team.
Small Group Interviews. During the month of March 2022, the consultant team conducted small group
interviews with a total of thirty-five individuals familiar with Brewster’s housing needs to get a sense
of what has changed since the last HPP and what needs still remain. Participants included Town staff,
members of Town bodies, representation from housing advocacy groups and social service providers,
members of the business community, realtors, and residents.
Figure 1. Components of a Housing Production Plan
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2022-2027
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Community Survey. A community survey was available online and in paper form from March 10
through April 8, 2022. This survey asked questions about the respondent’s own housing needs as well
as their perspectives on the needs of the community. A total of 881 individuals participated in this
survey, the results of which are included in Appendix E.
Community Meeting. The Housing Partnership hosted a virtual community meeting on April 28, 2022
to share key findings from the Needs Assessment and invite participants to join breakout groups
focused on the following topics: housing needs; development constraints; mapping housing solutions;
housing goals and strategies; and regional context. A summary of findings from this event is also
included in Appendix E.
Focus Groups. Between May 10 and May 19, 2022, the consultant team conducted eight focus groups
with Town staff, nonprofit and for-profit developers, representation from regional housing partners,
and members from Town bodies. Participants were asked to review and provide comments on draft
strategies for the HPP.
Initial Presentation of Needs, Goals, and Strategies to the Select Board and Planning Board. On June 6,
2022, the consultant team presented the Needs Assessment, Goals, and Implementation Strategies to
the Select Board and Planning Board for their review. Both boards were invited to provide comments
through the Housing Office on the presentation.
Second Community Meeting on Draft Plan. On June 16, 2022, the Housing Partnership hosted a second
virtual community meeting, during which the consultant team presented the draft plan.
Approximately 30 attendees participated and were given opportunities to ask questions during the
presentation.
Public Comment Period. Members of the public were encouraged to provide written comments on the
draft plan for two weeks from June 16-June 30, 2022. Three written comments were submitted during
this time, in addition to five written comments received previously following the June 6 presentation
to the Select Board and Planning Board. Town staff and the consultant team discussed the comments
and necessary changes to the plan. These comments are on file with the Brewster Housing Office.
Final Public Hearing and Plan Adoption. On July 11, 2022, the consultant team presented the revised
final plan to the Select Board and Planning Board for review. Both boards adopted the plan at this
joint meeting.
A NOTE ON DATA SOURCES
Information for the Brewster Housing Production Plan comes from a variety of sources, including the
Town, the community engagement process described above, previous plans and studies, the Cape
Cod Commission, state agencies, proprietary data, the U.S. Department of Housing and Urban
Town of Brewster
Housing Production Plan
2022-2027
6
Development (HUD), and the U.S. Bureau of the Census. The most frequently used sources of data
are as follows:
• The Census of Population and Housing (Decennial Densus). This plan draws from Census 2020
where appropriate, but historical census tables were also used as needed. When this planning
process ended, information available from Census 2020 was still limited and only included
total housing unit counts, general vacancy information (but not vacancies by type, an
important factor for seasonal communities), total population counts, and information about
population race and ethnicity for redistricting purposes. The full release of Census 2020 will
also include an official year-round housing count, as well as data regarding tenure, household
types, population by age, and more.
• The American Community Survey (ACS). The ACS provides demographic and housing estimates
for large and small geographic areas every year. Although the estimates are based on a small
population sample, a new survey is collected each month, and the results are aggregated to
provide a similar, “rolling” dataset on a wide variety of topics. In most cases, data labeled
“ACS” in this plan are taken from the most recent five-year tabulation: 2016-2020 inclusive.
• HUD Consolidated Planning/Comprehensive Housing Affordability Strategy (CHAS) Data.
Created through a combined effort of the U.S. Department of Housing and Urban
Development (HUD) and the Census Bureau, this dataset is a “special tabulation” of ACS
According to the HUD guidance, “these special tabulation data provide counts of the numbers
of households that fit certain combinations of HUD-specified criteria such as housing needs,
HUD-defined income limits (primarily 30, 50, and 80 percent of median income) and
household types of particular interest to planners and policy-makers.” The most recent CHAS
Data are based on the ACS 2014-2018 estimates.
• Housing Market Sources. The consultants tapped the Warren Group’s extensive real estate
transaction databases to sample sales volume and sale prices, as well as Rentometer for rental
market data.
• Town Data. Information provided by the Building Department, Planning Department, and
Deputy Assessor supported a review of local development patterns and market trends, and
Assessor’s records were used to analyze Brewster’s housing stock.
• Massachusetts Department of Transportation (MassDOT) Socio-Economic Projections for 2020
Regional Transportation Plans. This source was relied upon for population projections and
trends.
In addition, many local and regional publications were reviewed during the development of this
Housing Production Plan and are referenced throughout this document.
Town of Brewster
Housing Production Plan
2022-2027
7
Housing Needs Assessment
KEY FINDINGS
• Brewster’s population increased by 5 percent between 2010 and 2020 Census, despite recent
projections forecasting a potential decline. The number of households also increased by 9
percent.
• The share of older residents and older householders living alone have both increased since the
2010 Census. Conversely, the percentages of residents under 18 and households with children
under 18 have declined.
• Brewster’s population lacks racial and ethnic diversity, although the percentage of minority
residents has slightly increased since the 2010 Census.
• The Town- and county-wide the percentage of older adults with a disability is markedly lower
than the state. Nonetheless, older Brewster residents are much more likely to have a disability
than residents under age 65.
• Household wealth is increasing, with a significant jump in higher-income households from
2010 and a decrease in lower-income households. Regionally, the HUD area median family
income (HAMFI) has also increased sharply since 2021.
• In addition to the percentage of low-to-moderate income (LMI) households decreasing, the
percentage of households earning between 80 and 100 percent HAMFI has decreased, likely
because they cannot find housing; these households are ineligible for the limited subsidized
units currently available in Brewster and are also likely to be priced out of an increasingly
competitive housing market.
• This wealth increase is not equally felt across Brewster households, with two census block
groups meeting the criteria for 2020 Environmental Justice (EJ) Population designation based
upon lower household income levels relative to the statewide household income level.
• Older adults living alone are the most likely household type to be low-to-moderate income
(LMI), and female householders living alone are more likely to be living in poverty than any
other household type.
• Brewster’s housing stock is predominantly detached single family homes, although Brewster
has a higher share of attached single-family homes (i.e., condominiums) than the Lower Cape,
county, and state. There is very limited multi-unit residential development, and most rental
units in multi-unit structures are deed-restricted affordable units.
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• Older single-family homes build before 1960 hold more land value than building value and
accordingly may be at greater risk of teardown.
• Rental opportunities are limited, particularly for market-rate rental units. Other than the
recent ADU/ACDU bylaw amendment, the Town’s zoning does not facilitate the production
of multi-unit or mixed-use residential development that would provide more rental units.
• The share of housing units for seasonal, recreational, or occasional use has increased while the
share of year-round renter households has decreased. Market projections indicate that the gap
between year-round and second homes will continue to narrow if housing trends are not
altered.
• Housing sale prices have jumped significantly since 2020 and continue to rise, a trend more
pronounced in Brewster and the Lower Cape than county- or statewide.
• Households earning the area median income are unlikely to be able to afford a home at
Brewster’s median sales price, and renters earning the median renter income for Brewster are
unlikely to be able to afford market rental units.
• The majority of LMI households (an estimated 58 percent) are unaffordably housed (“housing
cost-burdened”), paying more than 30 percent of their income toward housing costs.
Seventeen percent of non-LMI households are cost-burdened.
• Among both owners and renters, households earning below 50 percent of the area median
income are most likely to be cost-burdened, although there is also significant need at the 80-
100 percent level.
DEMOGRAPHIC PROFILE
Population Trends
Brewster experienced tremendous growth between 1970 and 2000, increasing more than five-fold from
1,790 to 10,094 residents. This trend occurred across the Cape and Islands compared to the rest of
Massachusetts, which made the population dip most Cape communities experienced by 2010
somewhat striking. While projections by the Massachusetts Department of Transportation (MassDOT)
in 2018 anticipated a continued population decline through 2040, the Town’s population in fact
increased by nearly 500 between 2010 and 2020.8 The Cape Cod Commission also published
8 In 2018, MassDOT — in conjunction with an advisory team of experts from regional and state agencies, the Massachusetts
Donohoe Institute (UMDI) and the Metropolitan Area Planning Council (MAPC) — projected population changes and housing
demand through the year 2040. This project was intended to inform 2020 Regional Transportation Plans and analyzed
demographic trends, labor force participation, commuting pattens, and other data to estimate population and household growth.
Town of Brewster
Housing Production Plan
2022-2027
9
population projections through 2025 as part of their 2017 Regional Housing Market Analysis, which
anticipated a 2020 population of 9,833.9
POPULATION AGE
An estimated 14 percent of Brewster
residents are under 18, which is in line with
the county (15 percent), but significantly
lower than the state (20 percent). Conversely,
Brewster has a markedly larger percentage of
older adults over age 55 than the state (53
percent and 30 percent, respectively). This
trend applies to the Lower Cape and county
to different degrees, as shown in Table 1.
Figure 3 breaks down Brewster’s population by age, and Figure 4 highlights changes in different age
groups between 2010 and 2020. All benchmark geographies saw a decrease in the share of their
populations under 55 and an increase for the 55+ populations. Both population shifts were more
pronounced in Brewster than in the Lower Cape, County, or state to varying degrees.
9 Cape Cod Commission, Regional Housing Market Analysis and 10-Year Forecast of Housing Supply and Demand for Barnstable County,
Massachusetts, 2017. Prepared by Crane Associates, Inc. and Economic Policy Resources.
Table 1. Percent of Population Under 18 and Over 55
% Population
Under 18
% Population
Over 55
Brewster 13.8% 52.9%
Lower Cape 12.5% 56.9%
Barnstable County 15.2% 48.2%
MA 19.9% 30.1%
Source: ACS 5-Year Estimates, 2016-2020, Table B01001
1,790
5,226
8,440
10,094 9,820 10,318
9,786 9,266
7,863
0
2,000
4,000
6,000
8,000
10,000
12,000
1970 1980 1990 2000 2010 2020 2030 2040
Year
Figure 2. Total Population: Past Trends and Future Projections
Sources: US Decennial Census, 1970-2020, MassDOT Population Projections, 2018
Population (Actual)Population (Projected)
Town of Brewster
Housing Production Plan
2022-2027
10
-3%
-4%
-7%
8%
2%
-3%
-1%
-7%
8%
2%
-3%
-1%
-7%
7%
1%
-2%
-1%
-4%
5%
0%
-8%
-6%
-4%
-2%
0%
2%
4%
6%
8%
10%
Figure 4. Percent Change in Population by Age, 2010-2020
Source: ACS 5-Year Estimates, 2006-2010 and 2016-2020, Table B01001
Brewster Lower Cape Barnstable County MA
Under 18 Years 18 to 34 Years. 35 to 54 Years
55 to 74 Years Over 75 Years
13.8%
14.7%
18.8%
39.1%
13.8%
Figure 3. Population by Age
Source: ACS 5-Year Estimates, 2016-2020,
Table B01001
Under 18 Years (13.8%)
18 to 34 Years (14.7%)
35 to 54 Years (18.8%)
55 to 74 Years (39.1%)
75 Years and Over (13.8%)
Town of Brewster
Housing Production Plan
2022-2027
11
RACE, ETHNICITY, AND CULTURE
While the Cape continues to have
less racial and ethnic diversity than
the state, Brewster’s population did
see a slight increase in its minority
populations between 2010 and 2020,
as did the Lower Cape and
Barnstable County. In Brewster, the
largest increase during this time was
among of residents identifying as
two or more races (see Table 2). Map
2 displays the minority population
across the Lower Cape region by
census block group.
EDUCATION
Nearly half (48 percent) of Brewster’s population over age 25 holds a bachelor’s degree or higher,
exceeding Barnstable County and Massachusetts (both an estimated 45 percent), although behind the
Lower Cape’s estimated 52 percent. Nearly a quarter of the adults over 25 living in Brewster and the
Lower Cape have advanced degrees — master’s, professional, or doctoral — which sets the region
apart from the County as a whole and state.
Table 2. Brewster Population by Race and Ethnicity, 2010-2020
2010 2020
White 96.7% 91.4%
Black 0.7% 1.6%
American Indian and Alaska Native 0.2% 0.2%
Asian 0.9% 1.1%
Native Hawaiian and Other Pacific Islander 0.0% 0.1%
Other 0.5% 1.0%
Two or More Races 1.0% 4.7%
Hispanic or Latino (All Races) 1.7% 3.0%
Source: US Decennial Census, 2010 and 2020
2.9%2.2%4.2%
8.9%
19.6%18.9%
22.7%23.5%
30.3%
27.0%28.1%
23.0%23.7%
27.5%
24.9%24.5%23.6%24.4%
20.1%20.0%
0%
5%
10%
15%
20%
25%
30%
35%
Brewster Lower Cape Barnstable County MA
Figure 5. Educational Attainment for the Population 25 and Over
Source: ACS 5-Year Estimates, 2016-2020, Table B15003
Less than High School
High School Graduate (Includes Equivalency)
Some College
Bachelor's Degree
Advanced Degree (Master's, Professional, or Doctorate Degree)
A N Town of Brewster
Map 2. Minority Population, Lower Cape
May 2022; Source: Town of
Brewster, U.S. Census 2020,
MassGIS, and MassDOT
134
DENNIS
YARMOUTH '-..._L
) '1 / � // (,. r-1 / ' )
( �
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Percent Minority
D 4%-6%
D 6.1%-8%
D 8.1%-11%
-I I.I%-13%
-13.1%-17%
r -'-
0 1 2
Miles
MassDOT Major Roads
U.S. Highway
State Route
-Non-numbered Road
D Town of Brewster
r _ 1 Other Lower Cape Towns
L _:1 Surrounding Towns
(" EASTHAM
Town of Brewster
Housing Production Plan
2022-2027
13
LABOR FORCE
A community’s labor force includes all civilian residents over the age of 16 who are either currently
employed or are actively seeking employment. Brewster has an estimated civilian labor force of 4,976,
with 4,641 employed in a variety of industries.10 ACS estimates indicate that over one fifth of
Brewster’s labor force is employed in educational services, health care, or social assistance, as shown
in Table 3. Additionally, an estimated 23 percent of working Brewster residents work in Brewster,
which is a significantly lower share of individuals working in their municipality of residence than in
the Lower Cape (35 percent), County (41 percent), and state (33 percent). The difference is not
surprising considering Brewster’s small local economic base, although it also reinforces feedback from
the community engagement process that people who work in Brewster may struggle to afford to live
in the community.
DISABILITY
Twelve percent of Brewster residents live
with a disability, a figure in line with the
Lower Cape and County (both 13 percent),
and state (12 percent).11 Over half of Brewster
residents over 65 have some sort of disability,
which is relatively low compared to the state.
This trend applies county-wide, as the Cape’s
share of this age cohort with a disability is 52
percent, significantly lower than the state’s 67
percent. Table 4 breaks down disabilities by
type, both among Brewster residents with a
disability and among all non-institutionalized residents. Overall, cognitive difficulties are the most
common challenge, closely followed by independent living difficulties.
10 ACS 5-Year Estimates, 2016-2020, Table C24030.
11 ACS 5-Year Estimates, 2016-2020, Table B18101. Note that ACS disability status is calculated using the non-institutionalized
population, which means those living in institutionalized “group quarters” settings such as nursing homes are not included. ACS
estimates indicate that Brewster’s non-institutionalized population is 9,530 compared to the total population estimate of 9,811.
Table 3. Top Five Industries for Brewster’s Labor Force
Industry % Resident
Labor Force
Educational Services; Health Care and Social Assistance 22.3%
Professional, Scientific, Management; Administrative and Waste Management Services 16.8%
Arts, Entertainment, and Recreation; Accommodation and Food Services 13.8%
Construction 12.8%
Other Services (Except Public Administration) 8.3%
All Other Industries Combined 26.0%
Source: ACS 5-Year Estimates, 2016-2020, Table C24030
Table 4. Type of Disability
Type of Disability % Disabled
Pop
% Total
Pop
Hearing Difficulty 34.0% 3.9%
Vision Difficulty 5.6% 0.7%
Cognitive Difficulty 49.7% 5.8%
Ambulatory Difficulty 31.3% 3.6%
Self Care Difficulty 13.7% 1.6%
Independent Living Difficulty 47.6% 5.5%
Source: ACS 5-Year Estimates, 2016-2020, Table S1810.
Because some residents may have multiple disabilities,
percentages do not equal 100 percent.
Town of Brewster
Housing Production Plan
2022-2027
14
Household Type
In federal census terms, a family household includes two or more related people living together in the
same housing unit, and a non-family household can be a single person living alone or two or more
unrelated people living together. Brewster’s percentage of family and non-family households is
similar to the county and state levels, but the breakdown is significantly different; only 19 percent of
Brewster households have children under 18 (a decrease since 2010, as Table 5 shows), compared to
the state at 29 percent. This trend is consistent across the Cape, with some Outer Cape communities
even falling below 10 percent. For nonfamily households, the percentage of householders living alone
increased in Brewster by about 5 percent. Among this household type, the biggest increase was among
those 65 or older, representing 41 percent of householders living alone in 2010 versus 63 percent in
2020.12 Map 3 displays families with children under 18 by census block group and Map 4 shows
households with someone over 65.
12 American Community Survey 5-Year Estimates, 2016-2020, Table B25011.
Table 5. Changes in Household Type, 2010-2020
2010 2020 Difference
Number Percent Number Percent Percent
Family Households 2,851 64.0% 2,812 62.3% -1.7%
With Children Under 18 938 21.1% 849 18.8% -2.3%
With No Children Under 18 1,913 43.0% 1,963 43.5% 0.5%
Nonfamily Households 1,602 36.0% 1,703 37.7% 1.7%
Householder Living Alone 1,201 27.0% 1,428 31.6% 4.6%
Householder Not Living Alone 401 9.0% 275 6.1% -2.9%
Total Households 4,453 100.0% 4,515 100.0%
Source: ACS 5-Year Estimates, 2006-2010 and 2016-2020, Table B11001
3.
Town of Brewster
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15
Town of Brewster
Housing Production Plan
2022-2027
16
Household Size
The estimated average household size in Brewster is 2.11, below the county at 2.20 and more
significantly below the state at 2.50.13 This trend toward smaller household sizes in Brewster is also
demonstrated by 2010 and 2020 population and household counts; while the 2020 Census average
household size is not available at the time of this plan, Table 6 displays the ratio between total
population and total households to estimate changes in household size. For additional context, Maps
5 and 6 show the concentration of one-person households and households of four or more persons by
census block group.
13 ACS 5-Year Estimates, 2016-2020, Table B25010
Table 6. Ratio Population and Household Counts, 2010 and 2020
Brewster Lower Cape Barnstable County MA
2010 2020 2010 2020 2010 2020 2010 2020
Ratio of Pop to
Household 2.24 2.16 2.12 2.11 2.25 2.22 2.57 2.56
Source: US Decennial Census, 2010 and 2020
Town of Brewster
Housing Production Plan
2022-2027
17
Household Income
In 2020 the estimated median household income for Brewster households was $81,625, slightly over
the Lower Cape median of $78,985 and the County at $76,863.14 However, median income is not the
only indicator of household wealth in a community, particularly when a significant number of
householders are retired; thirty-eight percent of Brewster households had retirement income
compared to 36 percent for the Lower Cape and 32 percent for the county, setting the Cape
significantly apart from the state’s 19 percent of households with retirement income.15 For this reason,
viewing income levels across households provides additional insight regarding distribution of wealth.
Between 2010 and 2020, the share of Brewster households earning over $125,000 increased
considerably, while households earning below this level decreased across most income subcategories,
as Figure 6 demonstrates. The greatest shift was in households earning over $200,000, which jumped
over 9 percent in a ten-year period. This may indicate that wealthier households have moved into the
community over the last decade, a finding also demonstrated by the housing market analysis later in
this plan.
14 ACS 5-Year Estimates, 2016-2020, Table B19013. For regional context, Map 7 displays median household incomes by block
group across the Lower Cape.
15 ACS 5-Year Estimates, 2016-2020, Table B19059
15.8%
23.1%
21.1%
10.8%
15.1%
5.1%4.7%4.3%
13.3%
16.8%
15.5%16.3%
7.9%7.3%
9.3%
13.7%
0%
5%
10%
15%
20%
25%
Les
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Figure 6. Household Income for Brewster Households, 2010-2020
Source: ACS 5-Year Estimates, 2006-2010 and 2016-2020
2010 2020
Town of Brewster
Housing Production Plan
2022-2027
18
This trend is also confirmed by Comprehensive Housing Affordability Strategy (CHAS) data, which
provides estimates of households at 30, 50, 80, and 100 percent or greater of HUD’s Area Median Family
Income (HAMFI).16 These income levels are determined by HUD for Metropolitan Statistical Areas
(MSAs), which are large geographies designated by the U.S. Office of Management and Budget to
represent a larger regional market.17 Between 2010 and 2018 (the most recent year for which CHAS
data is available), the percentage of low-income households earning 80 percent HAMFI or lower
slightly decreased while the percentage of households earning over 100 percent HAMFI increased by
nearly 5 percent (see Table 7). Also notable is the decrease in households earning over 80 percent and
up to 100 percent HAMFI, likely due to these households being priced out of an increasingly
competitive housing market yet also being ineligible for an affordable unit.
Table 7. Estimated Households by Income Level, 2010-2018
2010 2014 2018 Difference,
2010-2018
Percent of Households Earning 80% HAMFI or Lower 36.7% 37.8% 34.3% -2.4%
Percent of Households Earning 81-100% HAMFI 14.9% 11.6% 12.7% -2.2%
Percent of Households Earning More Than 100 % HAMFI 48.1% 50.6% 52.9% 4.8%
Source: Comprehensive Housing Affordability Strategy (CHAS) data, 2014-2018
AREA MEDIAN INCOME
Regionally, the median family median income as determined by HUD has increased sharply, jumping
$26,3000 from FY2021 to FY2022, as shown in Figure 7.
16 The area median income is used by HUD to determine income limits for eligibility for assisted housing programs.
17 Brewster is part of the “Barnstable Town, MA MSA,” which includes all fifteen Cape Cod communities.
$75,300 $79,000
$80,000
$74,900
$74,900
$80,300
$77,100
$90,200
$86,200
$91,300 $96,600
$89,300
$115,600
$50,000
$70,000
$90,000
$110,000
$130,000
2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 2021 2022
Figure 7. HUD Area Median Family Income (HAMFI) for
Barnstable County Metropolitan Statistical Area
Town of Brewster
Housing Production Plan
2022-2027
19
AGE AND INCOME
In terms of income and age, Brewster householders 45 to 64 have the highest median household
incomes of local and county households, as shown in Table 8. This trend is common for this age group,
as they tend to be more advanced in their careers than their peers in younger age brackets. However,
Brewster’s median income for householders 25 to 44 is nearly $22,000 lower than the state level, which
means that younger Brewster households may have more difficulty with housing and other expenses.
Conversely, the median income for householders 65 and over is considerably higher than the state, a
trend that makes sense considering the percentage of wealthier households has increased along with
the percentage of older adults.
Table 8. Median Household Income by Age of Householder
Brewster Barnstable County Massachusetts
Householder Under 25 Years No Data $54,975 $44,222
Householder 25 To 44 Years $74,597 $82,045 $96,311
Householder 45 To 64 Years $101,852 $95,374 $103,973
Householder 65 Years And Over $67,288 $65,297 $52,973
Source: ACS 5-Year Estimates, 2016-2020, Table 19049
HOUSEHOLD TYPE AND INCOME
Despite the relatively higher median income for older adults, “elderly non-family” households (adults
over age 62 living alone) are nonetheless the most likely to be considered “low to moderate income,”
or LMI. This refers to households earning at or below 80 percent HAMFI. The “Poverty Level” section
below explores this topic further and looks at household types most likely to experience poverty.
Table 9. Low-to-Moderate Income (LMI) Households by Household Type
HUD-Defined Household Types Total
Households LMI Households % LMI
Households
Elderly family (2 persons, with either or both age
62 and over) 1205 385 32.0%
Elderly non-family 870 530 60.9%
Large family (5 or more persons) 215 30 14.0%
Small family (2 persons, neither person 62 years
or over, or 3 or 4 persons) 1425 250 17.5%
Other (non-elderly non-family) 575 280 48.7%
Source: Detailed CHAS Tables, 2014-2018, Table 7
Town of Brewster
Housing Production Plan
2022-2027
20
ENVIRONMENTAL JUSTICE POPULATIONS
In 2021, the Massachusetts Executive Office of Energy and Environmental Affairs (EEA) updated its
2002 Environmental Justice (EJ) Policy in accordance with Chapter 8 of the Acts of 2021.18 This policy
defines an EJ population as a neighborhood (i.e., census block group) meeting specific thresholds
relating to: median household income; percentage of population belonging to a racial or ethnic
minority; or percentage of households with limited English proficiency. As part of this effort, the EEA
mapped 2020 EJ designations by census block group based upon American Community Survey data.19
In Brewster’s case, two of the Town’s nine census block groups met the policy’s income criterion,
which states that the median household income of a neighborhood is at or below 65 percent of the
statewide median household income.20 An estimated 9.4 percent of Brewster’s population lives in
these two block groups, both of which are in the northern part of Town along Cape Cod Bay.
Poverty Level
An estimated 6.9 percent of Brewster households live below the poverty level, which is slightly lower
than the county (7.1 percent) and significantly lower than the state (10.6 percent). Of those households
living in poverty, the highest percentage is among female householders living alone between the ages
of 25 and 44 (30.5 percent) and over 65 (30.2 percent). This trend of female householders living alone
being more likely to experience poverty is also seen at the county and state levels.21
18 Environmental Justice Policy of the Executive Office of Energy and Environmental Affairs. Updated June 24, 2021. Available at:
https://www.mass.gov/doc/environmental-justice-policy6242021-update/download
19 Online EJ mapper available at:
https://mass-eoeea.maps.arcgis.com/apps/webappviewer/index.html?id=1d6f63e7762a48e5930de84ed4849212
20 The newer EEA policy also defines the American Community Survey (ACS) as the source for income data, whereas the previous
policy cited federal census data. data is based upon 2019 ACS data.
21 ACS 5-Year Estimates, 2016-2020, Table B17017
N Town of Brewster
Map 7. Median Household Income, Lower Cape
May 2022; Source: Town of
Brewster, U.S. Census 2020,
MassGIS, and MassDOT
YARMOUTH
(
134
r -'-
Median Household Income
D $40 .833 -$47 .083
D $47 .083 -$68. 182
D $68. 1 82 -$81 .02 9
-$81,02 9 -$ I 00 ,250
-$100 ,2 5 0 -$147 ,177
D No Data
0 1 2
Miles
MassDOT Major Roads
U.S. Highway
State Route
-Non-numbered Road
D Town of Brewster
r _ 1 Other Lower Cape Towns
L _:1 Surrounding Towns
(" EASTHAM
Town of Brewster
Housing Production Plan
2022-2027
22
HOUSING CHARACTERISTICS
As of the 2020 U.S. Decennial Census, there were 8,234 housing units located in Brewster, up from
7,953 in 2010. Of the housing units in Brewster, an estimated 75 percent are detached single-family
homes compared to 52 percent of the housing across Massachusetts. Because Brewster experienced
significant growth between 1970 and 1990, the number of housing units likewise increased, growing
more than four-fold.22 Figure 8 highlights this growth pattern, which largely coincides with the age of
the Town’s housing stock described below.
Housing Age
Brewster has a significantly larger share of homes built between 1980 and 1999 than the Lower Cape,
county, and state, with an estimated 51 percent of Brewster’s housing units built during this time.
While Figure 9 displays the age of housing stock by intervals of twenty years, housing units built
during the 1980s make up the largest share by decade at an estimated 36 percent (2,878 housing units),
the largest jump in five decades. Also of note is the much smaller share of housing units built before
1940 in Brewster compared to the Lower Cape, Barnstable County, and the state.
22 Minnesota Population Center. National Historical Geographic Information System: Version 2.0. Minneapolis, MN: University of
Minnesota 2011.
1,494
3,489
6,367
7,339
7,953 8,234
0
2,000
4,000
6,000
8,000
10,000
1970 1980 1990 2000 2010 2020
To
t
a
l
H
o
u
s
i
n
g
U
n
i
t
s
Year
Figure 8. Brewster Total Housing Units, 1970-2020
Source: U.S. Decennial Census and Minnesota Population Center
Town of Brewster
Housing Production Plan
2022-2027
23
Housing Types
While Brewster’s estimated share of total share of single-family homes is on par with the County’s
share (each 87 percent), Brewster has a significantly higher percentage of “single family attached”
homes (such as condominiums), estimated at 11 percent compared to the Lower Cape and county’s 5
percent. The Villages at Ocean Edge is the largest contributor to this category of housing, although
there are other smaller attached condominium developments off Snow Road and along Cape Cod Bay.
Table 10. Units in Structure
Brewster Lower Cape Barnstable County Massachusetts
Single Family, Detached 75.4% 84.9% 81.6% 52.1%
Single Family, Attached 11.1% 5.2% 5.1% 5.5%
2 Units 1.8% 1.7% 2.3% 9.7%
3 or 4 Units 3.4% 2.5% 3.6% 10.7%
5 to 9 Units 4.1% 2.8% 2.8% 5.8%
10 to 19 Units 2.0% 1.0% 1.4% 4.3%
20 to 49 Units 1.4% 1.4% 1.5% 4.4%
50 or More Units 0.8% 0.4% 1.2% 6.9%
Other 0.0% 0.1% 0.5% 0.8%
Source: ACS 5-Year Estimates, 2016-2020, Table B25024
4.2%
10.3%10.5%
31.6%
4.4%
9.4%10.9%
17.0%
29.5%
31.4%31.8%
21.7%
51.6%37.3%35.4%18.8%
10.3%11.6%11.5%10.9%
0%
20%
40%
60%
80%
100%
Brewster Lower Cape Barnstable County Massachusetts
Figure 9. Year Structure Built
Source: ACS 5-Year Estimates, 2016-2020, Table 25034
Built 2000 or later
Built 1980 to 1999
Built 1960 to 1979
Built 1940 to 1959
Built 1939 or Earlier
Town of Brewster
Housing Production Plan
2022-2027
24
SINGLE-FAMILY (DETACHED) HOMES
Cape-style homes are most common among Brewster’s detached single family homes (45 percent),
followed by ranches (28 percent) and colonials (14 percent).23 The remaining 13 percent of detached
single-family homes consist of a mix including contemporary, conventional, cottage/bungalow,
raised ranch, and other home styles. Table 11 below indicates the most common style for homes built
during different periods, as well as other notable features including the average residential floor area,
lot sizes, and number of rooms. Homes built since 2000 tend to be larger and hold more building value
compared to the land, as shown by the ratio of average land values to average building values. A ratio
under 1.0 indicates that the buildings on average are more valuable than the land, in large part due to
the trend toward larger homes. Conversely, ratios over 1.0 indicate that the land on average is more
valuable than the buildings. This is more common for older homes, potentially putting them at greater
risk of teardown, as a new or existing owner of an older home may choose to demolish and rebuild
rather than repair, renovate, or maintain a home in poor condition. The Town may wish to monitor
teardown activity to see whether this trend increases in Brewster, potentially leading to changes in
overall housing affordability.
Table 11. Change in Size and Value in Brewster's Single-Family Home Inventory
Year Built
No. of
Records
Most
Common
Housing Style
Average
Residential Floor
Area (Sq. Ft.)
Average
Lot (Sq. Ft.)
Average
No.
Rooms
Ratio of Average Land
Value to Average
Building Value
2000 to Present 760 Cape 2,561 50,809 7 0.583
1980 to 1999 2,343 Cape 1,913 37,529 6 0.688
1960 to 1979 1,930 Cape 1,608 27,844 6 0.950
1940 to 1959 298 Ranch 1,445 36,406 6 2.435
1939 or Earlier 295 Conven/Old 1,773 50,103 7 1.499
Source: Brewster's Assessor's Parcel Database (2022) and Barrett Planning Group LLC
CONDOMINIUMS
Assessor’s records indicate that Brewster has 1,518 condominium units, which accounts for the
relatively large share of attached single-family homes noted above. However, there are also a number
of detached condos (124), such as those in the recently developed Brewster Landing on Sachemus
Trail.24 Brewster’s condominium stock predominantly consists of townhouses and garden style
buildings, although there are also some duplexes and triplexes.
TWO-UNIT HOMES
Assessed differently from a duplex condominium where each unit has its own owner, a two-unit home
has one owner but two residential units. Assessor’s records indicate that Brewster has 47 two-unit
homes, nearly half of which are owner-occupied and most of which were built prior to 1980.
23 Town of Brewster Assessor’s Records, FY 2022.
24 Brewster Landing has 28 condominiums total, with 24 detached and 4 in duplex structures.
Town of Brewster
Housing Production Plan
2022-2027
25
LARGER MULTI-UNIT PROPERTIES
Brewster’s multi-unit housing portfolio includes a very limited number of smaller, 4–8-unit structures
(four, according to Assessor’s records). Additionally, there are several larger multi-unit rental
properties, all of which contribute or are expected to contribute to the Town’s Subsidized Housing
Inventory (SHI) and are described below.
• King’s Landing. Constructed in 1975, King’s Landing is Brewster’s oldest multi-unit
development and provides 108 rental units in a mix of one-, two-, three-, and four-bedroom
apartments. King’s Landing was acquired and renovated by Preservation of Affordable
Housing (POAH) in 2013.
• Huckleberry Lane. One of two Brewster Housing Authority (BHA) properties, Huckleberry
Lane was built in 1989 to provide family housing and includes 24 two- and three-bedroom
rental units.
• Frederick Court. BHA’s second property was built in 1990 and consists of 32 one-bedroom
rental units for older adults and disabled persons.
• Wells Court. Built in 2004 on land provided by the BHA, Wells Court consists of one building
housing 24 one-bedroom rental units for older adults.
• Serenity at Brewster. The former Wingate property has been redeveloped into 132 studio and
one-bedroom rental units for older adults over age 55. Phase 1 opened in July 2021 and
included 41 studios; Phase 2 is expected to be ready for occupancy in 2022 and will include 91
studios and one-bedroom units. Of the project’s 132 total units, 27 are expected to be added to
the Town’s SHI in 2022.
• Brewster Woods. Currently in development and built on land leased from the BHA, Brewster
Woods will provide 30 one-, two-, and three-bedroom rental units in two buildings.
MIXED USE
Assessor’s records indicate 79 mixed use properties with some degree of residential use alongside
commercial activity. This includes properties that are primarily residential with a secondary
commercial use (e.g., an antique shop or art gallery), as well as properties that are primarily
commercial with a secondary residential use such as a second-floor apartment.
NURSING HOMES & ASSISTED LIVING
Brewster has two assisted living facilities that provide a combined 191 units. Both Maplewood and
Pleasant Bay Woodlands Assisted Living include ten percent affordable units, although these are not
included on the Town’s SHI.
Town of Brewster
Housing Production Plan
2022-2027
26
Vacancy & Tenure
CHANGE IN VACANCY
From 2010 to 2020, the percentage of vacant units decreased in Brewster, as was the trend at the Lower
Cape, county, and state levels, although to a greater degree than Brewster experienced (see Figure 10,
which displays the percent change in housing occupancy from 2010 to 2020). While the percent of
occupied units increased, this figure should not be considered a metric for the availability of year-
round housing because it does not account for the vacancy type. For census purposes, “vacant” units
include those used for seasonal, recreational, or occasional use, so much of Brewster’s vacant housing
units are used as second homes or short-term rentals. Because Census 2020 data has only been partially
released, the official year-round housing count (which subtracts these seasonal homes) is not yet
available. However, ACS estimates indicate an increase in housing units used for this purpose, as
shown in in Figure 11. Thus, while the percentage of vacant units has decreased, these units
considered “vacant” are increasingly used for seasonal, recreational, or occasional use – a trend
described during the community engagement process. Map 8 shows the percentage of vacant housing
units by block group.
8.8%8.4%8.0%7.9%
-2.6%
-4.7%-4.7%-4.5%
-6%
-4%
-2%
0%
2%
4%
6%
8%
10%
Figure 10. Percent Change in Housing Occupancy, 2010-2020
Source: US Decennial Census, 2010 and 2020
Occupied Units: % Change from 2010-2020 Vacant Units: % Change from 2010-2020
Brewster Lower Cape Barnstable
County MA
6.1%
5.0%
3.0%
0.3%
0%
1%
2%
3%
4%
5%
6%
7%
Brewster Lower Cape Barnstable County MA
Figure 11. Percent Change in Total Housing Units Used For Seasonal, Recreational,
or Occasional Use, 2010-2020
Source: ACS 5-Year Estimates, Table B25004
Town of Brewster
Housing Production Plan
2022-2027
27
IMPACT ON YEAR-ROUND TENURE
Housing tenure refers to whether a householder owns or rents their home. Feedback from the
community engagement process indicates an observation that year-round rentals are being replaced
by short-term rentals, leading to displacement of renter households. Brewster does not currently track
whether a housing unit is an owner’s primary or secondary residence (or whether it used for short-
term rentals), nor is detailed Census 2020 vacancy status available as of the date of this plan. While it
is difficult to determine the precise impact of short-term rentals on year-round tenure, the limited data
available corroborates this feedback from residents: ACS estimates indicate a decline in the share of
year-round renter households between 2010 and 2020, both in Brewster and the Lower Cape (and to
a lesser degree, the county) with a corresponding increase in the share of vacant units, as Figure 12
demonstrates. In addition, a market analysis of advertised rental units in Brewster over the last 48
months indicates a very limited inventory, with an average of twelve units advertised per year.25 Map
9 shows the percentage of renter households by census block group based on the most recent ACS 5-
year estimates.
25 See attached report in Appendix A. This does not include units in Brewster’s larger multi-unit residential developments; these
properties (described on page 17) have very long waitlists of several years because they are all affordable units.
42.3%45.5%45.9%50.9%
38.2%41.6%
9.8%9.1%
9.9%8.2%10.3%7.5%
12.1%11.9%
32.4%34.1%
47.8%46.3%43.8%41.6%49.7%46.5%
57.8%56.8%
0%
20%
40%
60%
80%
100%
Figure 12. Housing Occupancy and Tenure
Source: ACS 5-Year Estimates, 2006-2010 and 2016-2020, Tables B25002 and B25003
Vacant Renter-Occupied Owner-Occupied
2010 2020
Brewster Lower Cape
2010 2020
Barnstable
County
2010 2020
MA
2010 2020
Town of Brewster
Housing Production Plan
2022-2027
28
Town of Brewster
Housing Production Plan
2022-2027
29
TENURE BY AGE & INCOME
Homeowners in Brewster tend to be older and wealthier, with the strong majority of householders
over the age of 45 owning their homes. The breakdown by tenure shifts somewhat for older adults
over age 75 who are more likely to rent than householders between the ages of 45 to 74.26 Younger
householders between 25 and 34 are much more likely to rent than own a home in Brewster.
26 For census purposes, “householder” refers to the person or one of the people in whose name a housing unit is owned or
rented; thus, because the number of householders for a geography equals the number of households, the data discussed in this
section does not refer to all members of a household.
22%
65%
90%
100%
91%
94%
82%
88%
78%
35%
10%
9%
6%
18%
12%
0%20%40%60%80%100%
25 To 34 Years
35 To 44 Years
45 To 54 Years
55 To 59 Years
60 To 64 Years
65 To 74 Years
75 To 84 Years
85 Years And Over
Figure 13. Tenure by Age of Householder
Source: ACS 5-Year Estimates, 2016-2020, Table B25007
Note that a true 100% value is unlikey; ACS estimates are based on a rolling
5-year dataset and include a margin of error.
Owner Renter
34%
76%
85%
82%
98%
100%
66%
24%
15%
18%
2%
0%20%40%60%80%100%
Less than $25,000
$25,000-$49,000
$50,000-$74,999
$75,000-$99,999
$100,000 to $149,999
$150,000 or more
Figure 14. Tenure by Household Income
Source: ACS 5-Year Estimates, 2016-2020, Table B25118
Owner Renter
Town of Brewster
Housing Production Plan
2022-2027
30
HOUSING MARKET
Development Trends
Building permits are a good indicator of housing
activity within a town because they show the
predominant types of development activity in a
given year. Table 12 provides a snapshot of
residential building permit activity from 2017-
2021 and indicates that residential development
continues to favor single-family homes, with
teardown activity more prevalent in 2017 and
2018 than in recent years. Additionally, since the
Town adopted its 2018 ADU/ACDU bylaw, over 20 building permits for ADUs have been issued.28
The most recently permitted affordable housing developments have been multi-unit projects,
including Serenity at Brewster and Brewster Woods. Looking forward, the Town recently accepted a
proposal to develop 45 one-, two-, and three-bedroom rental units on 16.1 acres of Town-owned Land
on Millstone Road. All other affordable developments over the last ten years have provided affordable
ownership opportunities, including fourteen Habitat for Humanity homes on Paul Hush Way
(permitted in 2017), seven homes at Brewster Landing (out of twenty-eight total homes; permitted in
2014), and three homes at White Rock Commons (out of twelve total homes; permitted in 2014). Apart
from Brewster’s two existing assisted living facilities, all larger multi-unit residential development in
Brewster has been tied to the development of affordable housing — and all except Serenity at Brewster
have been 100 percent affordable. While this is commendable and serves to meet the needs of the most
vulnerable households, it also points to a lack of market rate rental available to households ineligible
for an affordable unit but who want or need to rent for a variety of reasons, as well as the lack of
regulatory mechanisms for creating this housing.
Housing Sale Prices
Housing prices have soared in Brewster, with a current 2022 median sale price (through April 2022)
of $753,500 for a single-family compared to $602,000 for Barnstable County.29 As shown in Figure 15,
from 2020 to 2021, median sales prices in Brewster jumped $135,500 for single-family homes and
$92,250 for condominiums, representing the largest one-year increase in over ten years. While this
increase in median sales price is not unique to Brewster, Figure 16 shows that Brewster and the Lower
Cape are experiencing this decrease in affordability to a greater extent than the county and state.30
27 2018: seven multi-unit permits issued for modular dormitory-style buildings at Ocean Edge used to house J-1 visa workers.
2021: two multi-unit permits issued for each phase of Serenity at Brewster; two multi-unit permits issued for Brewster Woods.
28 Brewster Housing Office, “2022 Housing Summary Update Paper,” February 2022.
29 Median Sales Price for Brewster and Barnstable County, Calendar Year, Banker & Tradesman via The Warren Group. Median
sales price is based upon twenty-four sales in Brewster between January and April 2022 and 1,052 sales for Barnstable County.
30 Lower Cape median sale prices based on average of median sale prices for Brewster, Chatham, Harwich, and Orleans.
Table 12. Residential Building Permit Data, 2017-2021
Single Family
Permits
Multi-Unit
Permits27
Demolition
Permits
2017 36 14
2018 41 7 22
2019 14 7
2020 22 4
2021 17 4 1
Source: Brewster Building Department, March 2022
Town of Brewster
Housing Production Plan
2022-2027
31
$763,953
$200,000
$300,000
$400,000
$500,000
$600,000
$700,000
$800,000
2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 2021
Figure 16. Median Single Family Sales Prices for Brewster and Comparison
Geographies, 2010—2021
Source: Banker & Tradesman via The Warren Group
Adjusted for Inflation to 2020
BREWSTER Lower Cape
Barnstable County MA
Linear Trend (Brewster)Linear Trend (Lower Cape)
Linear Trend (Barnstable County)Linear Trend (MA)
$365,000 $369,000
$397,500 $380,000 $374,900 $389,750 $415,000 $425,000 $450,000 $465,000
$519,500
$655,000
$251,487
$222,638
$241,029
$226,444
$241,744 $223,165
$255,925
$238,248
$275,744 $282,529 $285,000
$377,250
$200,000
$300,000
$400,000
$500,000
$600,000
$700,000
$800,000
2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 2021
Figure 15. Brewster Median Sales Prices, 2010-2021
Source: Banker & Tradesman via The Warren Group
Adjusted for Inflation to 2020 by Barrett Planning Group
Single Family Condo
Town of Brewster
Housing Production Plan
2022-2027
32
Property Taxes
Property taxes are often an important consideration for perspective residents when deciding where to
purchase a home and are often cited as a concern for many retired adults who must account for
increasing property tax bills against a fixed income. Residential property invariably accounts for the
largest percentage total assessed value in cities and towns, particularly for communities with a limited
commercial base. In Brewster’s case, residential assessed values make up 94.5 percent of the total
assessed value for FY2022, a higher share than all Cape communities except Truro, Wellfleet, and
Eastham.31 While this speaks to the more rural character of Brewster that many residents cherish, it
also means that property taxes may be more of a concern for residents.
That said, despite Brewster’s limited commercial tax base, the average single family tax bill is
consistently less than that of other Lower Cape communities, as shown in Figure 17.32 However, just
because the average tax bill is lower in Brewster does not mean that the tax rate is lower. In fact, the
residential tax rate for Brewster in 2022 is $7.85 per $1,000 in assessed value, higher than Chatham
($4.62) and Orleans ($7.20), although lower than Harwich ($8.11).33
Communities can adopt a “residential exemption” which results in an increased tax rate but allows
eligible owners of primary residences to deduct a predetermined amount from their property
assessments before figuring taxes. Residential exemptions can ultimately shift the residential tax
burden from year-round owners of moderately priced homes to owners of rental properties and
31 “Assessed Values by Class,” FY 2022. Division of Local Services, Massachusetts Department of Revenue.
32 “Average Single Family Tax Bill,” FY2017-2022. Division of Local Services, Massachusetts Department of Revenue.
33 “Tax Rates by Class,” FY 2022. Division of Local Services, Massachusetts Department of Revenue.
2017 2018 2019 2020 2021 2022
BREWSTER $4,073 $4,219 $4,499 $4,736 $4,838 $5,091
Chatham $4,389 $4,462 $4,651 $4,842 $5,030 $5,164
Harwich $4,261 $4,456 $4,698 $4,960 $5,029 $5,162
Orleans $4,799 $5,200 $5,992 $6,265 $6,593 $6,703
$4,000
$4,500
$5,000
$5,500
$6,000
$6,500
$7,000
Figure 17. Average Single Family Tax Bill for Lower Cape Communities, FY2017-2022
Source: Average Single Family Tax Bill, Division of Local Services, MA Department of Revenue
Town of Brewster
Housing Production Plan
2022-2027
33
vacation homes — as well as year-round owners of higher valued properties.34 This tipping point for
year-round homeowners occurs if the amount subtracted from assessed value is not enough to
counteract the increased tax rate, an important consideration as home values continue to rise.
Although this practice is more common among seasonal communities, only a few Cape communities
have adopted the residential exemption (most recently, Wellfleet, Truro, and Provincetown, with
Barnstable having adopted the residential exemption in 2005). The percentage of year-round owner-
occupied housing units can help a community determine whether a residential exemption makes
sense — the smaller the share of eligible homeowners, the more balanced the shift in tax burden will
be. The Outer Cape communities that have recently adopted the residential exemption have
significantly lower shares of homeowners eligible for the residential exemption than Brewster and
much higher percentages of homes used for seasonal, recreational, or occasional use. Based upon
Brewster’s estimated share of owner-occupied homes, the Brewster Board of Assessors historically
has not recommended adopting a residential exemption, although they continue to monitor these
considerations and provide an analysis annually to the Brewster Selectboard.35
Market Rents
Determining a true “market rent” range for Brewster is
difficult because of the limited inventory of market rate rentals
from which to draw data. Additionally, ACS data for gross
rent includes subsidized units, which lowers the median. For
understanding market rent, this section uses HUD’s 2022 Fair
Market Rents (FMRs) for the Barnstable County Metropolitan
Statistical Area (MSA). FMRs are “housing market-wide
estimates of rents that provide opportunities to rent standard
quality housing throughout the geographic area in which
rental housing units are in competition.”36 Table 13 displays
the FMRs by bedroom for Brewster’s MSA.
Housing Market Projections
According to the Cape Cod Commission’s 2017 Regional Housing Market Analysis, housing demand is
expected to increase most dramatically in the over-65 age group through the year 2025, which
corresponds with the continued population increase for this cohort.37 Additionally, while the total
number of year-round housing units in Brewster is expected to continue to exceed the number second
34 Residential exemptions are authorized under MGL c. 59, §5C.
35 Memo from James Gallagher, Deputy Assessor, to Jill Scalise, Housing Coordinator. June 30, 2022.
36 Code of Federal Regulations, § 888.113: “Fair market rents for existing housing: Methodology.”
37 Cape Cod Commission, Cape Cod Commission, Regional Housing Market Analysis and 10-Year Forecast of Housing Supply and
Demand for Barnstable County, Massachusetts, 2017, Table 3.8, Page 60. Prepared by Crane Associates, Inc. and Economic Policy
Resources.
Table 13. 2022 Fair Market Rent
(FMR), Barnstable County MSA
Bedrooms Monthly FMR
1 br $1,428
2 br $1,879
3 br $2,323
4 br $2,548
Source: 2022 FMR for Barnstable
Metropolitan MSA, HUD
Town of Brewster
Housing Production Plan
2022-2027
34
homes through 2025, the gap is anticipated to narrow; of the net 413 total housing units anticipated
between 2015 and 2025, it is forecasted that 292 will be second homes compared to 131 year-round
homes.
HOUSING AFFORDABILITY
Housing Cost Burden
One metric for understanding housing affordability is housing cost burden. The U.S. Department of
Housing and Urban Development (HUD) defines cost-burdened households as those paying more
than 30 percent of their income toward housing costs, and severely cost-burdened households as those
paying more than 50 percent. Cost-burdened households have fewer funds left over for other expenses
such as food, transportation, clothing, childcare, and medical care. This strain makes it difficult for
these households to “get ahead” financially as they struggle to meet these necessities, let alone
establish savings. In Brewster, an estimated 31 percent of all households are cost-burdened compared
to 35 percent for Barnstable County.38 Figure 18 displays the level of cost burden for households at
different income levels using the Household Area Median Family Income (HAMFI, also abbreviated
AMI for Area Median Income). While there is need at all levels, the lower income households are
much more likely to be cost-burdened than households earning the median or higher. That said, there
is still substantial need at levels over 80 percent AMI, and these households are not eligible for
subsidized housing designated for households earning 80 percent AMI or less. In addition, the dataset
used to analyze cost burden (Comprehensive Housing Affordability Strategy [CHAS] data) lags by
several years and likely underrepresents cost burden in today’s housing market. Housing affordability
gaps (discussed further below) use more current data and provide another metric of housing
attainability.
38 Comprehensive Housing Affordability Strategy (CHAS) data, 2014-2018. Note that these figures include severely cost-burdened
households. Breaking it down further, an estimated 20 percent of Brewster households are cost-burdened at 31-50 percent and
11 percent are severely cost-burdened at over 50 percent. At the County level, 19 percent of households are cost-burdened at
31-50 percent and 16 percent are severely cost-burdened at over 50 percent.
21%20%
75%70%
87%
26%
49%
17%21%
13%53%31%8%9%
1%
0%
20%
40%
60%
80%
100%
Extremely Low Income
(Up to 30% HAMFI)
Very Low Income
(31-50% HAMFI)
Low Income
(51-80% HAMFI)
Moderate Income
(81-100% HAMFI)
Median Income or Higher
(≥100% HAMFI)
Figure 18. Housing Cost Burden by Income Level -All Households
Source: CHAS, 2014-2018
No Cost Burden Cost Burden 31%-50%Cost Burden > 50%
Town of Brewster
Housing Production Plan
2022-2027
35
HOUSEHOLD TYPES MOST AFFECTED BY COST BURDEN
Among low-to-moderate (LMI) households, 58 percent of households experience some degree of cost
burden compared to 17 percent of non-LMI households. Tables 14A and 14B highlight the household
types most affected by housing cost burden, with “somewhat cost-burdened” defined as paying more
than 30 percent but less than or equal to 50 percent of household income on housing costs, and
“severely cost-burdened” as paying more than 50 percent. Large families are most likely to be
somewhat cost-burdened, whereas “other” LMI household types such as single householders under
62 or living in nonfamily housing situations are most likely to be severely cost-burdened.
Table 14A. Estimated Percentage of Cost-Burdened Households by Household Type, LMI Households
LMI
Households
Somewhat Cost-
Burdened LMI
Households
% Of
Household
Type
Severely Cost-
Burdened LMI
Households
% Of
Household
Type
Elderly family (2 persons, with either or
both age 62 or over) 385 115 29.9% 90 23.4%
Elderly non-family 530 125 23.6% 135 25.5%
Large family (5 or more persons) 30 15 50.0% 0 0.0%
Small family (2 persons, neither person
62 years or over, or 3 or 4 persons) 250 120 48.0% 40 16.0%
Other 280 60 21.4% 155 55.4%
Total LMI Households 1,475 435 29.5% 28.5% 28.5%
Table 14B. Estimated Percentage of Cost-Burdened Households by Household Type, Non-LMI Households
Non-LMI
Households
Somewhat Cost-
Burdened Non-
LMI Households
% Of
Household
Type
Severely Cost-
Burdened LMI
Households
% Of
Household
Type
Elderly family (2 persons, with either or
both age 62 or over) 820 165 20.1% 10 1.2%
Elderly non-family 340 50 14.7% 30 3.7%
Large family (5 or more persons) 185 60 32.4% 0 0.0%
Small family (2 persons, neither person
62 years or over, or 3 or 4 persons) 1175 120 10.2% 15 1.8%
Other (non-elderly non-family) 295 10 3.4% 10 1.2%
Total Non-LMI Households 2,815 405 14.4% 65 2.3%
Source: Detailed CHAS Tables, 2014-2018, Table 7
Table 15 below shows maximum monthly housing costs that would prevent cost burden at different
income levels. This table uses HUD’s FY 2022 income limits, which are used to determine eligibility
for certain assisted housing programs and are calculated up to 80 percent AMI, and income limits up
to 100 percent AMI as determined by the Massachusetts Housing Partnership (MHP). For additional
reference, Appendix B correlates income levels to different jobs to provide context.
Town of Brewster
Housing Production Plan
2022-2027
36
Housing Affordability Mismatch: Owners
An estimated 29 percent of homeowner households in Brewster experience some degree of cost
burden, with 17 percent considered cost-burdened and 12 percent severely cost-burdened. Table 16
breaks cost burden for owner households by income level, with the highest value in each cost-
burdened category emphasized. Very low- and extremely low-income owner households are the most
likely to experience cost burden, although a significant amount of households earning over 80 percent
of the HAMFI are also cost-burdened. These households would not be eligible for any current
subsidized units in Brewster at this income level.
Table 15. FY 2022 Income Limits and Maximum Affordable Housing Payments Extremely Low Income
(Up to 30% AMI)
Very Low Income
(Up to 50% AMI)
Low Income
(Up to 80% AMI)
Moderate Income
(Up to 100% AMI)
HUD
Income
Limit
Max.
Affordable
Housing
Payment
HUD
Income
Limit
Max.
Affordable
Housing
Payment
HUD
Income
Limit
Max.
Affordable
Housing
Payment
MHP
Income
Limit
Max.
Affordable
Housing
Payment
Ho
u
s
e
h
o
l
d
S
i
z
e
1 $22,850 $571 $38,050 $951 $60,900 $1,523 $76,100 $1,903
2 $26,100 $653 $43,500 $1,088 $69,600 $1,740 $87,000 $2,175
3 $29,350 $734 $48,950 $1,224 $78,300 $1,958 $97,850 $2,446
4 $32,600 $815 $54,350 $1,359 $86,950 $2,174 $108,700 $2,718
5 $35,250 $881 $58,700 $1,468 $93,950 $2,349 $117,400 $2,935
6 $37,850 $946 $63,050 $1,576 $100,900 $2,523 $126,100 $3,153
7 $41,910 $1,048 $67,400 $1,685 $107,850 $2,696 $134,800 $3,370
8 $46,630 $1,166 $71,750 $1,794 $114,800 $2,870 $143,500 $3,588
Source: HUD Income Limits, 2022; Massachusetts Housing Partnership (MHP) ONE Mortgage Program 2022 Income Limits,
and Barrett Planning Group. MHP Income Limits are extrapolated from HUD Income Limits. Maximum affordable housing
payment calculation based on 30% of the annual income level divided by twelve.
Table 16. Income by Cost Burden (Owners Only)
Income Level No Cost Burden Cost burden 30%-49% Cost burden > 50%
Extremely Low Income (Up to 30% HAMFI) 6% 10% 84%
Very Low Income (31-50% HAMFI) 19% 47% 34%
Low Income (51-80% HAMFI) 75% 16% 9%
Moderate Income (81-100% HAMFI) 70% 20% 10%
Median Income or Higher (≥ 100% HAMFI) 86% 13% 1%
All Incomes 71% 17% 12%
Source: Comprehensive Housing Affordability Strategy (CHAS) data, 2014-2018
Town of Brewster
Housing Production Plan
2022-2027
37
Another method for understanding housing affordability
is the affordability gap, which is the difference between a
purchase price (or rent) and what a household can afford.
Based on Brewster’s current property tax rate and industry
standards for housing affordability, mortgage terms,
insurance rates, and other factors, households earning the
HUD-defined Area Median Family Income (HAMFI,
$115,600) likely could not currently afford to purchase a
single-family home in Brewster at the current median sale
price, as shown in Table 17.
Housing Affordability Mismatch: Renters
Brewster renters are more likely to experience cost burden than homeowners, with an estimated 41%
of renter households experiencing some degree of cost burden. Table 1 below breaks cost burden for
renter households by income level, with the highest value in each cost-burdened category
emphasized. The limitations of CHAS data become apparent in the table below, as the sample size
shrinks when looking at Brewster’s limited number of renter households (an estimated 535 total for
the most recent year CHAS data is available). Just as for homeowners, there is a substantial number
of cost-burdened households earning over 80 percent area median income who would be ineligible
for a traditional subsidized income but are nonetheless financially strained due to housing costs.
In Brewster’s case, very low levels of cost burden in higher income levels (equal to or greater than 100
percent of the HAMFI) can also indicate another issue facing households: an insufficient supply of
market rate rental units. There may be households who could afford market rate rentals, but the
supply is not there. Thus, the sample size remains very small (an estimated 110 renter households at
this income level), making the margin of error more substantial. While any true 0- or 100-percent
figure is unlikely, this data still highlights the general trend that renter households earning at least
100 percent of the area median income are much less likely to experience cost burden — and that the
very limited supply of market rate rentals accordingly limits the number of renter households at this
income level.
Table 18. Income by Cost Burden (Renters Only)*
Income Level No Cost Burden Cost burden 30%-49% Cost burden > 50%
Extremely Low Income (Up to 30% HAMFI) 46% 49% 6%
Very Low Income (31-50% HAMFI) 22% 57% 22%
Low Income (51-80% HAMFI) 78% 22% 0%
Moderate Income (81-100% HAMFI) 63% 38% 0%
Median Income or Higher (≥ 100% HAMFI) 100% 0% 0%
All Incomes 59% 35% 7%
Source: Comprehensive Housing Affordability Strategy (CHAS) data, 2014-2018.
*Any 0- or 100-percent figure is unlikely due to margin of error and small sample size.
Town of Brewster
Housing Production Plan
2022-2027
38
In terms of the rental affordability gap, a household renting a 2-bedroom unit at the FMR ($1,879)
should have a household income of approximately $75,000 to avoid housing cost burden, yet the
estimated median household income of renter households in Brewster is $35,000.39
Chapter 40B Subsidized Housing Inventory
Also known as the Comprehensive Permit Law, Chapter 40B of Massachusetts General Law was
enacted to provide for a regionally fair distribution of affordable housing for people with low or
moderate incomes. Units created under Chapter 40B remain affordable over time because a deed
restriction limits resale prices and rents for many years, if not in perpetuity. The law establishes a
statewide goal that at least 10 percent of the housing units in every municipality will be deed restricted
affordable housing to ensure that all communities meet the “regional fair share” of low- or moderate-
income housing. Other options for measuring “fair share” include a general land area minimum and
an annual land disturbance standard.40
Chapter 40B authorizes the Zoning Board of Appeals (ZBA) to grant a comprehensive permit to pre-
qualified developers to build affordable housing.41 A comprehensive permit covers all the approvals
required under local bylaws and regulations, streamlining the application process. Under Chapter
40B, the ZBA can waive local requirements and (a) approve, (b) conditionally approve, or (c) deny a
comprehensive permit; however, developers may appeal to the state Housing Appeals Committee
(HAC) if their application has been denied in a community that does not meet one of the three
statutory determinants of “consistent with local needs.” During its deliberations, the ZBA must
balance the regional need for affordable housing against valid local concerns such as public health
and safety, environmental resources, traffic, or design. Nonetheless, Chapter 40B tips the balance in
favor of housing needs in towns that do not meet one the three statutory tests. In addition, ZBAs
cannot subject a comprehensive permit project to requirements that “by right” developments do not
have to meet.
The 10 percent statutory minimum is based on the total number of year-round housing units in the
most recent decennial census. In seasonal communities the number of year-round housing units is
significantly lower than the total housing unit count. In Brewster the 10 percent minimum is currently
480 units and is based upon the 2010 Census year-round housing count for Brewster (4,803). At 5.58
percent, Brewster currently falls short of the 10 percent minimum; to meet that standard, the Town
would need an additional 212 units based on its current SHI, although this will change when the 2020
Census year-round housing count is released. Three projects have recently been permitted and are
expected to add a total of fifty-nine units to the SHI in 2022. These projects include Serenity at Brewster
39 ACS 5-Year Estimates, 2016-2020, Table B25119.
40 The general land area minimum applies if SHI-eligible units have been developed on sites comprising 1.5 percent or more of
the total land area zoned for residential, commercial, or industrial use; the annual land disturbance threshold applies if a
comprehensive permit application would lead to the construction of SHI-eligible units on sites comprising more than 0.3 percent
of the total land area zoned for residential, commercial, or industrial use or ten acres – whichever is greater – in one calendar
year.
41 A “pre-qualified developer” has obtained a “Project Eligibility” letter from a state housing agency.
Town of Brewster
Housing Production Plan
2022-2027
39
(twenty-seven rental units for adults 55+ or older), Brewster Woods (thirty rental units), and Red Top
(two ownership units developed by Habitat for Humanity). Map 10 and Table 19 provide an overview
of the Town’s current SHI profile. Of the eighteen total projects either currently on the SHI or
anticipated to be added to the SHI, nine were developed under Chapter 40B. Appendix C provides
additional information about the Town’s SHI units including funding sources, number of bedrooms,
and other details.
Table 19. Current Subsidized Housing Inventory and Anticipated Future Units
Current SHI Units
Name Location Type Units Affordability
Expires
40B Comprehensive
Permit?
N/A Frederick Court Rental 32 Perp No
Huckleberry Lane Huckleberry Lane Rental 12 Perp No
Huckleberry Lane Huckleberry Lane Rental 12 Perp No
Belmont Park Belmont Park Drive Ownership 20 Perp Yes
Great Fields Affordable
Housing Great Fields Road Ownership 2 Perp No
King's Landing Underpass Road Rental 108 2033 No
Yankee Village Signal Hill Circle Ownership 12 2045 Yes
Frederick Court Expansion Wells Court Rental 24 Perp Yes
Yankee Drive II Yankee Drive Ownership 3 2102 Yes
Eagle Point Turning Mill Rd Rental 3 2040 No
DDS Group Homes Confidential Rental 12 N/A No
Habitat for Humanity James Burr Road Ownership 4 Perp Yes
Tubman Road/Hush Way -
Habitat for Humanity
Tubman Road, Hush
Way Ownership 14 Perp No
Brewster Landing Sachemus Path Ownership 7 Perp Yes
White Rock South Orleans Rd Ownership 3 Perp Yes
Total SHI Current Units 268
Anticipated Future Units
Name Location Type Units Affordability
Expires
40B Comprehensive
Permit?
Brewster Woods Brewster Road Rental 30 Perp Yes
Serenity at Brewster Harwich Road Rental 27 Perp No
Red Top - Habitat for
Humanity Red Top Road Ownership 2 Perp Yes
Total Anticipated Units 59
Anticipated Total, 2022 327
Town of Brewster
Map 10. Subsidized Housing Inventory
May 2022; Source: Town of
Brewster, MassGIS, and MassDOT
I
I
I
I
<J> 0
'.'.; (1) (1) -0 (1) 0 -...
0 0.5
N
1
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long
2 - 7 0 8 -14 0 15 -24 0 25 - 32
033-108
0 Ownership
• Rental
(
ORLEANS " "' 0
o'
::, 0 Vl
f
I
MassDOT Major Roads
U.S. Highway
State Route
-Millstone Road Community Housing Parcel* Non-numbered Road
OpenSpace: Level of Protection D Town of Brewster
In Perpetuity Water
Limited
-7
L -
Wetlands
Surrounding Towns
*Designated for community housing: application for 45
rental units current� under consideration
Town of Brewster
Housing Production Plan
2022-2027
41
BARRIERS TO DEVELOPMENT
The following section discusses the most significant constraints that may affect Brewster’s ability to
address affordable housing and year-round housing needs. In Housing Production Plans, terms such
as “barriers” or “constraints” are typically used as a value-neutral way to describe factors that
objectively limit housing development. While some “barriers” such as sensitive environmental areas
or historic resources can be considered constraints on development, they are also valuable community
assets — moreover, these barriers are unlikely to change if under special protections. Other “barriers”
can be remedied or improved upon, particularly those stemming from local regulations and policies
under the community’s direct control.
Environmental Constraints
Information for this section is summarized from 2021 Open Space and Recreation Plan (OSRP), unless
otherwise noted.42
TOPOGRAPHY
Brewster and the Cape were first formed when ice withdrew from the area of Martha's Vineyard and
Nantucket at the end of the last ice age. This glacier movement deposited hundreds of feet of
unconsolidated material in the area where the Cape is now located. Most of Brewster is comprised of
the Harwich Outwash Plain, a relatively flat are area caused by meltwater streams flowing off the
front of a receding glacier. Large blocks of ice left by the retreating glacier settled and were surrounded
by sediments deposited in outwash streams. These buried ice blocks finished melting long after the
outwash plains were formed, resulting in kettle-hole ponds where the ice blocks left holes large
enough to intersect the water table. In contrast to the relatively flat outwash plain areas making up
much of Brewster, areas of higher elevation in the northwestern part of town are characterized by less
well sorted sediments of varying particle sizes, including many boulders. Ultimately, this glacial
history explains why most of Brewster is composed of sandy glacial deposits, with limited areas of
more varied topography and pockets of wetlands, bogs, and clay.
SOILS
Soil types are broken into four categories (Groups A, B, C, D) depending on their level of permeability,
with Group A soils having the highest rate of water transmission and Group D soils having a very
slow infiltration rate. “Carver Association,” a Group A soil, comprises more than 75 percent of the
town's soils and has coarse lower layers that act as a reservoir for underground water replenished by
precipitation. However, the downside of a highly permeable soil is that it also allows septage,
contaminated road runoff, and other pollutants to quickly flow through the soil into the drinking
water supply. The remaining 25 percent of soils in the Town are wet soils, low-permeability soils,
wetlands, and surface waters.43
42 Town of Brewster, Open Space & Recreation Plan. Prepared by the Town of Brewster, Horsley Witten Group, and The Cape
Cod Commission. Conditionally approved January 2021; updated January 2022.
43 Ibid., Page 35.
Town of Brewster
Housing Production Plan
2022-2027
42
WATER RESOURCES
Watersheds. Located within the Cape Cod Watershed, the Town of Brewster encompasses six
embayment watersheds that it shares with neighboring jurisdictions. These include the Cape Cod Bay,
Herring River, Namskaket Creek, Pleasant Bay, Quivett Creek, and Stony Brook watersheds. Brewster
also contains a very small portion of the Bass River watershed. In Brewster, much of the focus has
been on the Pleasant Bay watershed, as Brewster’s nitrogen contribution is far greater to Pleasant Bay
than it is to Herring River or Bass River. As such, the Pleasant Bay Watershed has been included in
Brewster’s Water Resources bylaw, while the Herring River and Bass River Watersheds have not.
Surface Waters: Freshwater Lakes and Ponds. Freshwater ponds are a major defining feature of
Brewster. Over ten percent (or over 2,000 acres) of the Town's surface area is covered by approximately
eighty freshwater ponds, providing Brewster with the largest pond area on the Cape. The 743-acre
Long Pond shared with Harwich is the Cape's largest, while Cliff Pond with a depth of 84 feet is the
deepest. At least eleven of Brewster’s ponds are suitable for public swimming.
Marine Surface Waters. Brewster’s marine resources exist primarily on the north shore along Cape Cod
Bay. A small section of Brewster borders Pleasant Bay to the south, although there is no landing. While
there are no large estuaries in Brewster, there are some substantial creeks including Paine's, Quivett
and Namskaket. Nine of the ten saltwater beaches along Cape Cod Bay are accessible from a street
connecting to Main Street (Route 6A), and one is accessible by trail. At low tide, Brewster’s beaches
become a part of expansive tidal flats that extend ¾ of a mile out into Cape Cod Bay.
Aquifer Recharge Areas. The town’s groundwater system, like the whole of Cape Cod, is replenished
entirely by precipitation. Brewster’s drinking water supply source is its underground sole source
aquifer, the Cape Cod Aquifer. This resource is comprised of six lenses, including the Monomoy Lens,
which provides water to the Towns of Brewster, Dennis, Harwich, Chatham, and Orleans. The Town
of Brewster owns the land of the “Zone I” areas for all of the town’s drinking water wells. Zone I is the
protective radius required around a public water supply well or wellfield, which is 400 feet for
drinking water wells with approved yields of over 100,000 gallons per day. A Zone II is the area of an
aquifer which contributes water to a well under the most severe pumping and recharge conditions
that can be realistically anticipated (i.e., 180 days of pumping at approved yield with no recharge from
precipitation). Any contamination of groundwater in a Zone II could impact drinking water quality
at the public well drawing water from that area. Land acquisition in the Zone II areas to public
drinking water wells is a proactive approach to protecting drinking water quality. Of the 4,360 acres
(excluding surface water ponds) of Zone II areas in Brewster, 40 percent is protected as conservation
land in the form of Town- and state-owned properties, conservation restrictions, and other
conservation mechanisms. Brewster’s Zone I and II areas are displayed in Map 12.
FLOOD HAZARD AREAS
As a participant in the Federal Flood Insurance Program, Brewster is required to ensure that new
shorefront development meets engineering standards for flood proofing; however, development in
Town of Brewster
Housing Production Plan
2022-2027
43
these areas is not outright prohibited. Map 11 displays Brewster’s flood zones, and Brewster’s
Floodplain District (Section 179-7 of the Zoning Bylaw) is further described in the Regulatory
Considerations section of this document.
WETLANDS AND WILDLIFE HABITAT
Wetlands cover more than 20 percent of Brewster’s land area, with a total of 12,840 saltwater wetlands
and 553 acres of freshwater wetlands. Brewster’s saltwater wetlands consist of salt marshes, tidal flats
and barrier beaches, while its freshwater wetlands include sensitive Atlantic White Cedar, Red Maple
and shrub swamps, bogs, vernal pools and other wetlands. The Town’s Wetlands Protection Bylaw is
included in Section 172 of the Town’s General Bylaws, and Section 179-6 of the Zoning Bylaw
established the Town’s Wetlands Conservancy District. Map 11 shows Brewster’s wetlands by type,
in addition to the two Areas of Critical Environmental Concern (ACEC) within Brewster — the Inner
Cape Cod Bay ACEC and the Pleasant Bay ACEC. Designated by the Secretary of Energy and
Environmental Affairs, ACECs first receive initial nomination at the community level for the quality,
uniqueness, and significance of their natural and cultural resources. Upon designation, ACECs require
stricter environmental review of certain kinds of proposed development under state jurisdiction
within the ACEC boundaries.
Brewster’s abundant natural resources make it home to a variety of wildlife, with the Massachusetts
Natural Heritage & Endangered Species Program (NHESP) identifying much of the Town’s land cover
as “Critical Natural Landscape,” defined as intact landscapes better able to support ecological
processes and a wide array of species and habitats over long timeframes. While this designation does
not carry any regulatory restrictions along with it, for planning purposes, it helps frame which areas
to target for development versus preservation of contiguous natural habitat. In Brewster’s case, much
of the Critical Natural Landscape areas are already protected to varying degrees under conservation
restrictions or as part of the DCPC.
PROTECTED OPEN SPACE
Protected open space or permanently restricted lands include those acquired by conservation
restrictions, trust and gifts, town purchases, and tax takings. According to the 2021 Open Space and
Recreation Plan, Brewster has over 2,200 acres of large State and non-profit open space and
recreational holdings, such as Nickerson State Park, Camp Monomoy land acquired by the state,
Brewster Conservation Trust lands, Orenda Wildlife Trust, and the Cape Cod Rail Trail. Additionally,
lands associated with public buildings (e.g., Elementary Schools, Old Town Hall, Fire/Police Station,
Town Hall) and privately-held lands currently under Chapter 61, 61A, and 61B enhance the Town’s
open space and rural character.
Town of Brewster
Map 11. Environmental Concerns
May 2022; Source: Town of
Brewster, MassGIS, and MassDOT
I
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0 0.5
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1
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� Inner Cape Cod Bay
� Pleasant Bay
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Flood Zone Designations
A: I% Annual Chance of Flooding, no BFE
AE: I% Annual Chance of Flooding, with BFE
-VE: High Risk Coastal Area
X: 0.2% Annual Chance of Flooding
/
Wetland Types
Marsh/Bog
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Town of Brewster
Map 12. Water Resources & Protection
May 2022; Source: Town of
Brewster, MassGIS, and MassDOT
0 0.5 1
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I Long Po�, sDr111e 0. � A_ 1 J;' Wellhead Protection Areas
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D Town of Brewster
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- 7
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Wetlands
Surrounding Towns
Town of Brewster
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46
Infrastructure Considerations
Information for this section is summarized from 2021 Open Space and Recreation Plan (OSRP), unless
otherwise noted.
WATER AND WASTEWATER
Drinking Water. As described in the previous “Water Resources” section, drinking water in Brewster
originates from the Cape Cod Aquifer, a sole source aquifer. Drinking water comes through public
wells owned and operated by the Brewster Water Department, as well as a number of private wells
owned and operated by individual homeowners and businesses. The Town has five groundwater
wells pumping water from the Monomoy Lens, with each well site having large Town-owned tracts
of land surrounding them for water quality protection. Activity is restricted to passive recreation on
Town wellfield acreage.44
In addition to acquisition of lands for the protection of drinking water supplies, the town has also
developed regulations that further the protection of these lands. Most notable is Brewster’s Water
Quality Protection zoning bylaw (Article XI), which restricts development within Zone I and Zone II
areas and imposes performance standards on development within the District of Critical Planning
Concern (DCPC). The DCPC is a powerful planning tool that allows a town to adopt special rules and
regulations to protect natural resources in defined areas, with the Cape Cod Commission responsible
for recommending nominated DCPCs for official designation by the Barnstable County Assembly of
Delegates. Brewster’s DCPC, designated by the Cape Cod Commission in 2008, includes the Town’s
Zone I and Zone II areas as well as the Pleasant Bay Watershed. The Town’s wells and the protective
areas surrounding them are displayed on Map 11.
Wastewater. Because Brewster is not served with public sewers or private sewage treatment facilities,
wastewater discharges in Brewster are mostly from individual onsite septic systems. To address these
impacts of wastewater-associated pollutants and lawn fertilizers on groundwater and surface water
resources, the town has been involved in a multi-phase Integrated Water Resource Management Plan
(IWRMP). This project is currently in Phase III, which will include an examination and prioritization
of wastewater management alternatives identified in Phase II of the project.
TRANSPORTATION
Public Transit. The Cape Cod Regional Transit Authority (CCRTA) provides public transportation
services for all fifteen Cape Cod communities. The CCRTA Harwich-Provincetown Flex Bus provides
daily bus service along Routes 137 and 6A in Brewster, with fixed stops at Snow Road/Underpass
Road and the Senior Center. Riders can flag the bus down along its route and can also schedule the
bus “flex” stops up to three-quarters of a mile (by reservation) to serve people who have difficulty
getting to a regular bus stop. The Flex Bus route runs from Harwich up to Provincetown and connects
with other CCRTA routes, as well as the Plymouth & Brockton bus service to Boston.
44 Town of Brewster Water Department, “2020 Annual Water Quality Report.”
Town of Brewster
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47
DART Service (Dial-A-Ride, a demand response service) is a fare-based door-to-door, ride by
appointment transportation service offered by the CCRTA in all fifteen Cape communities Monday
through Saturday, with limited service on Sunday.
Roadways. Brewster is located midway on Cape Cod and is accessible by major highways (Route 6,
6A, 124 and 137). Route 6A extends the length of Brewster and is Brewster's Main Street. It is a
designated scenic road and also registered as the Old King's Highway National Register District,
which protects it from pressure to accommodate increased traffic that would diminish the roadway's
historically valuable character. According to the 2021 Open Space and Recreation Plan, “Pressure
increases each year to expand the roadway to accommodate bike traffic and reconfigure some
intersections where left hand turns cause back-ups in traffic. Attempts to expand the paved width of
roads to accommodate pedestrian, bike, and skate traffic have been met with strong opposition from
abutters to the road.”45
Sidewalks & Pedestrian Paths. As noted in the 2017 HPP, Brewster does not many public sidewalks,
and the sidewalks that exist are incomplete. While many pedestrian paths run along portions of these
roads, shoulders tend to be narrow and somewhat steep, with utility poles, trees, and smaller
vegetation interrupting the pathways and sidewalks. The 2021 OSRP notes that while Brewster many
walking trails and informal walkways throughout its conservation land, these pathways currently do
not provide alternative means of transportation without connecting to destination points, other links,
or modes of transportation. Linking these recreational resources and facilities with safe pedestrian or
bike paths could eliminate a significant amount of vehicular traffic in the future.
In 2015, Town Meeting approved a $10M road bond to undertake several road reconstruction projects.
After completing upgrades to Underpass and Snow Roads, the Town began to plan for similar
upgrades to Millstone Road. As of February 2022, this project as planned will include ADA-compliant
sidewalk along Millstone Road.
Bikeways. The 22-mile Cape Cod Rail Trail (CCRT) provides passage through the Town from Dennis
to South Wellfleet. The CCRT is about six miles long in Brewster and is the only designated bike path
in town. It is heavily used and serves as a primary corridor, with thousands of bicyclists, hikers, and
riders using the trail each year. Nickerson State Park also has an eight-mile bike path, which connects
to the CCRT. While cyclists also ride along local roads, this is dangerous and illustrates the need for
local and roadside bike lanes.
SCHOOLS
The Town of Brewster’s public schools consist of two elementary schools: Eddy Elementary School
(grades 3-5) and Stony Brook Elementary School (grades PK-2). Located off Underpass Road,
Stonybrook Elementary was built in 1973. In 1999, the town constructed Eddy Elementary on Main
45 Town of Brewster, Open Space & Recreation Plan. Prepared by the Town of Brewster, Horsley Witten Group, and The Cape
Cod Commission. Conditionally approved January 2021; updated January 2022. Page 25.
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48
Street to meet increased student enrollment and projections. The Town is now considering a
consolidation of its elementary schools due to declining enrollment (see Figure 19), and future
projections anticipating similar trends.46, 47
Special Needs. The Brewster Elementary Schools do not appear to have disproportionate over-
representation of special needs populations. Approximately 18.9 percent of the elementary student
population in Brewster has disabilities, compared with 19.1 percent statewide. The percentage of
English Language Learners is significantly lower for Brewster’s schools (4.1 percent) than the state
(11.0 percent).48
Nauset Regional Public School System. Brewster is part of the Nauset Regional Public School System for
middle school and high school, with both schools located in other towns; Nauset Regional Middle
School (grades 6-8) is located in Orleans, and Nauset Regional High School (grades 9-12) is located in
Eastham. The district consists of students from the four towns that comprise the region (Brewster,
Eastham, Orleans, and Wellfleet), together with tuition agreement students from Provincetown and
Truro and school choice students from other towns on the Cape. According to data provided by the
district, the total enrollment for the 2021-2022 school year was 1,390 for both schools, with 36 percent
of students coming from Brewster.
46 While enrollment increased from 2021 to 2022, it is possible that the significant drop in 2021 was due to the COVID-19
pandemic and resulting increase in the number of homeschooling families that year. As such, it is also important to look at the
overall trendline (dotted in Figure 19).
47 Town of Brewster, Elementary Schools Master Plan. Prepared by Habeeb & Associates Architects for the Town of Brewster,
December 31, 2021.
48 Department of Elementary and Secondary Education, Brewster Schools Profile.
350
400
450
500
550
2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 2021 2022
Figure 19. School Enrollment for Brewster's Elementary Schools, 2010-2022
Source: MA Department of Elementary and Secondary Education, District Profile
Total Enrollment Linear (Total Enrollment)
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Regulatory Considerations
ZONING
As noted in the 2017 HPP, The Brewster
Zoning Bylaw includes minimal provisions to
encourage the creation of affordable housing
or multifamily housing. Most land is zoned
for lower density residential development
(see Table 20 and Map 13), requiring
minimum lot sizes of at least 60,000 square
feet (RL and RM) or 100,000 square feet (see
Table 22).
The CH and VB districts allow residential and
commercial uses, and the I districts allow residential, wholesale, manufacturing, and industrial uses.
Table 21 below shows the residential uses allowed in each district, with “P” indicating that a use is
allowed by right and “P” indicating uses that require a special permit.
Table 21. Uses Regulations for Residential Uses
P = Permitted Use, S = Special Permit Use
Type of Residential Use RR RL RM CH VB I
Accessory residential building P P P P P -
Accessory commercial dwelling unit (ACDU) - - - S S -
Accessory single-family dwelling unit (ADU) on 30,000+ sq ft lot P P P S S -
Accessory single-family dwelling unit (ADU) on < 30,000 sq ft lot S S S S S -
Affordable multifamily dwelling units (AMFDU) - - - P - -
Cluster residential development S S S - - -
Construction trailer P P P P P P
Major residential development S S S S - -
Multifamily dwelling - - - S - -
One-family detached dwelling unit P P P - P -
One-family security dwelling - - - P P P
Planned residential development - S S - - -
Row or town houses - - - S - -
Subsidized elderly housing S S S S - -
Source: Town of Brewster Zoning Bylaw, Section 179: Attachment 1 Use Regulations.
Table 20. Brewster Zoning Districts
% Land
by Parcel
% Area
Zoned
Residential Rural (RR) 53.3% 48.4%
Residential Low Density (RL) 7.0% 12.8%
Residential Medium Density (RM) 33.1% 34.6%
Commercial High Density (CH) 2.5% 1.8%
Village Business (VB) 4.0% 0.6%
Industrial (I) 0.1% 1.5%
Municipal Refuse District (MRD) 0.0% 0.3%
TOTAL 100.0% 100.0%
Sources: Town of Brewster GIS and Assessor’s Records
Town of Brewster
Map 13. Zoning Map (Unofficial)
May 2022; Source: Town of
Brewster, MassGIS, and MassDOT
I
I
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D Residential Low Density -RL
D Residential Medium Density -RM
D Commercial High Density -CH
D Village Business -VB
Industrial - I
D Municipal Refuse District -MRD
ORLEANS " "' 0
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MassDOT Major Roads
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Accessory Residential Uses. Town’s current ADU bylaw (Section 179-42.2) was passed in 2018 an allows
homeowners in the Town’s residential districts to add an accessory dwelling unit (ADU) by right on
lots over 30,000 square feet, and by special permit on smaller lots, lots within the CH or VB districts,
or within certain water protection areas.49 Additionally, the ACDU bylaw (Section 179-42.3) allows
property owners to add an accessory dwelling unit to a commercial property by special permit in the
CH and VB zoning districts. The current bylaws requires that ADUs and ACDUs not be more than 40
percent of the habitable area of the primary building, or 900 square feet, whichever is smaller.
Despite passing these bylaws in 2018, the Town retained an older special permit provision for
“accessory residential buildings” as a residential use in the Use Regulations and “accessory
apartments” as a footnote in the zoning bylaw’s Area Regulations. Dwelling units created under this
provision are allowed by special permit in all residential districts, as well as the CH and VB districts,
with a lower maximum unit size of 600 square feet.
Other Residential Uses Permitted. Assisted Living Facilities and Nursing Homes are allowed in all
three residential districts through a special permit, and they are permitted by right in the CH district.
Assisted Living Facilities are defined in the Brewster Zoning Bylaw as a “combination of housing,
supportive services, personalized assistance, and health care designed to respond to the individual
needs of those who need help with activities of daily living….” Nursing Homes are defined as a “home
for the aged, chronically ill, persons requiring care or incurable persons in which three or more
persons, not of the immediate family, are received, kept or provided with food and shelter or care for
compensation….”
Lodging Houses are allowed in all three of the residential zoning districts through a special permit,
and they are permitted by right in the CH and VB districts. Lodging Houses are defined in the
Brewster Zoning Bylaw as a “structure originally designed for single-family use which may be
converted to provide rooms (not more than twelve) for the use of one or more individuals not living
as a single housekeeping unit and may provide a common dining facility. It shall include boarding
house, tourist homes, and rooming houses but does not include motels or hotels.”
Area, Height, and Bulk Regulations. As noted above, Brewster has large lot size requirements, with the
three residential districts from about one and a third acre to two and a third acres. Different lot
coverage requirements distinguish the RL and RM districts, with the former having a maximum of 20
percent building coverage and the latter 25 percent.
Multifamily Dwellings. The Town’s Zoning Bylaw defines multifamily dwellings as “a building
containing three or more dwelling units,” without distinguishing further between smaller multi-unit
residential buildings (e.g., 4-8 units) and larger developments. Multifamily dwellings are only allowed
49 Sections 179-42.2, Paragraph B: “An ADU may be located within a Zone II (Zone of Contribution to a Public Drinking Water
Well), in the watershed of the Herring River, or the watershed to Pleasant Bay, subject to approval of a Special Permit by the
Zoning Board of Appeals. All ADUs within these areas shall be required to install advanced nitrogen treatment septic systems, if
deemed necessary.”
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by special permit in the CH districts and have a stricter lot coverage limits than other uses allowed in
the district (25 percent of buildable uplands within a lot for multifamily compared to 40 percent for
other uses in the CH).50 Multifamily dwellings are also allowed by special permit in a Planned
Residential Development (PRD) under Section 179-36 of the Zoning Bylaw. PRDs, which require
twenty-five acres of contiguous buildable area, and are described further in the “Alternative
Development Patterns” section below.
Table 22. Area, Height, and Bulk Regulations
District Use
Min. Lot Size
(Square Feet)
*Max.
Building
Coverage of
Lot Area
Lot
Frontage
(Feet)
Front
(Feet)
Side
(Feet)
Rear
(Feet)
RR
Any permitted
structure or
principal use
100,000 plus 100,000
for second unit of duplex 15% 200 40 25 25
RL
Any permitted
structure or
principal use
60,000 plus 60,000
for second unit of duplex 20% 150 40 25 25
RM
Any permitted
structure or
principal use
60,000 plus 60,000
for second unit of duplex 25% 150 40 25 25
CH Row Commercial 40,000 40% 150 30 20 20
CH Multifamily
dwellings
130,000 plus
10,000 per bedroom 25% 200 100 30 30
CH Hotel and motel 130,000 plus
2,000 per bedroom 40% 200 100 30 30
CH Row house or
townhouse
130,000 plus
10,000 per bedroom 40% 200 100 30 30
CH
Any other
permitted
structure or
principal use
15,000 40% 80 30 15 15
VB
Any permitted
structure or
principal use
15,000 30% 80 30 15 15
I
Any permitted
structure or use,
other than those
listed for CH Zone
20,000 50% 100 30 15 40
Source: Town of Brewster Zoning Bylaw, Section 179: Attachment 2, Area Regulations and Attachment 3, Height and
Bulk Regulations
*For CH and I districts, the lot coverage is based upon buildable uplands within a lot; for all other districts, lot coverage is
based upon total lot area. For all districts, maximum building height is 30 feet.
50
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53
ALTERNATIVE DEVELOPMENT PATTERNS
Cluster Development. Section 179-35 under Article IX provides for cluster residential development,
which is intended to allow flexibility in lot sizes and building arrangements while maintaining the
existing character of the town. Cluster residential development, however, is only permitted by special
use permit granted by the Planning Board. Any parcel of at least ten acres in size in the RR, RL, and
RM districts may be used for a cluster development and divided into lots for a single-family residential
use, and the basic number of dwelling units may not exceed the number of units which could be
developed with a conventional plan for land in the RR, RL, or RM districts.
Major Residential Development. Also under Article IX, Section 179-35.2 allows for major residential
development, permitted by special use permit from the Planning Board. The Planning Board may
authorize flexible development within a major residential development, including the provision that
each lot shall have an area of at least half that required under Table 2.2 of Section 179-16 – Area
Regulations. The Planning Board may also approve a density bonus for major residential
developments for up to 15 percent more units than the basic number of maximum dwelling units to
encourage development of affordable units. Such an approval must be satisfactory to the Brewster
Housing Authority and include long-term income eligibility restrictions that meet the guidelines of
state or federal housing programs. Subsidized elderly housing is also allowed in a major residential
development. As a condition of the special permit, the Planning Board may require a development
schedule limiting the rate of development. In no event can a development be limited to fewer than six
lots or dwelling units per year or be obliged to spread development out over more than eight years.
Planned Residential Development. Section 179-36 under Article IX allows for Planned Residential
Development (PRD), which is intended to provide an alternate pattern of land development to that
permitted in the RM and RL residential zones while encouraging a greater mixture of housing types.
Planned residential development is only permitted by special permit in the RM and RL residential
districts and requires a minimum of twenty-five contiguous acres of buildable upland. Single-family
attached or detached dwellings, two-family, and multifamily dwellings are permitted within a
planned residential development; there is no minimum lot size for individual lots, no minimum
percentage of lot coverage, and no minimum lot width in a planned residential development, thus
allowing for greater density.
Natural Resource Protection Design. Lastly, under Article XIII, Section 179-69, Natural Resource
Protection Design (NRPD) is intended to protect water resources and preserve the open space in the
District of Critical Planning Concern (DCPC, described below in the “Special Districts” section).
Similar to the alternative development patterns described above, the NRPD bylaw uses flexible
regulations for density and lot dimensions to promote and encourage creativity in neighborhood
design, protect water resources, and preserve contiguous open space and environmental resources.
The primary difference is that NRPD not involving other uses requiring a special permit is allowed
by right in the DCPC in areas with an underlying residential designation, subject to the requirements
regulating the subdivision of land (if applicable) and subject to endorsement by the Planning Board.
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To enable the Planning Board to determine whether a proposed NRPD satisfies the purposes and
standards of the bylaw, an applicant must present sufficient information on the environmental and
open space resources for the Board to make such determination. Each underlying residential district
has a minimum requirement for preserved open space, and there is no minimum lot size or maximum
number or units; rather, a net acreage calculation described in Section 179-72.1 is applied to the plan,
and the allowable number of residential units is determined by this net acreage calculation and an
allowed density that varies by district (Section 179-72.2)
SPECIAL DISTRICTS
Floodplain District. The purpose of this overlay district is to regulate development in areas subject to
coastal storm flowage, particularly high hazard velocity zones, in order to minimize threats to public
safety, potential loss of life, personal injury, destruction of property, and environmental damage
inevitably resulting from storms, flooding, erosion and relative sea level rise. All uses otherwise
permitted in the underlying district are allowed; however, where the Floodplain District Bylaw
imposes additional or conflicting regulations, the more stringent local regulations prevail. All
development in the Floodplain District must comply with the Massachusetts State Building Code
dealing with construction in floodplains and coastal high hazards.
Wetlands Conservancy District. The purpose of these districts is to preserve and maintain the
groundwater table; to protect coastal and inland waters; to protect public health and safety; to protect
persons and property from the hazards of flood and tidal waters; and to conserve the natural character
of the environment, wildlife, and open space for the general welfare of the public. No residential or
commercial structures, sewage disposal systems, storage tanks or other potential sources of
substantial pollution are permitted in this district.
Water Quality Protection District. Article XI establishes the Water Quality Protection District, which
ensures an adequate quality and quantity of drinking water for the residents, institutions, and
businesses of Brewster. The provisions of this Article are superimposed over all zoning districts and
all land within Brewster and function as an overlay district. In addition, this article establishes specific
requirements for land uses and activities within the District of Critical Planning Concern (DCPC),
which includes Zone I and Zone II areas, as well as the Pleasant Bay Watershed. The construction of
ten or more dwelling units in the Water Quality Protection District requires a special permit from the
Planning Board. No building permit or certificate of occupancy will be issued by the Building
Commissioner unless a certificate of water quality compliance has been applied for or obtained by the
owner of a property from the Water Quality Review Committee.
HISTORIC DISTRICTS
In 1973 the Old King’s Highway Regional Historic District was created, following Route 6A and covering
portions of Brewster and five other Cape towns. Individual properties were not inventoried as part of
the district’s creation. Property owners must submit any exterior changes that are visible from a public
way, park, or body of water to the Old King’s Highway Regional Historic District Commission for
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55
approval. A variety of exterior features are often exempt such as air conditioning units, storm doors,
storm windows, paint color, and temporary structures. The decision on which features are exempt
from review depends on the specifics of the local bylaw. Map 14 displays the portion of the Old King’s
Highway Regional Historic District that runs through Brewster.
Socio-Political Considerations
Input gathered during this Housing Plan community engagement process indicated public
acknowledgement that the cost of housing is a barrier for the average household and that supply is a
growing issue for a range of income levels. However, survey open response comments on indicate
there may be the continued need for community conversations about housing, with “NIMBY”-ism
(“not in my back yard”) and resistance to change identified as significant barriers toward housing
development by survey respondents. Additionally, results from the recent Vision Planning
community survey showed overall less support for the housing goals than other topics. Making
progress on these efforts will require continued strong political leadership regarding housing issues
and raising community awareness about the relationship between housing and other issues facing the
community.
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Housing Production Plan Goals
State regulations and DHCD Housing Production Plan Guidelines describe the required framework
the goals of a Housing Production Plan, directing communities to include both qualitative and
quantitative goals based upon community and regional needs.51 Qualitative goals should support a
mix of housing types that: are affordable at a range of income levels; provide for a range of housing
types for families, individuals, persons with special needs, and older adults; and are feasible within
the housing market.
In addition, plans must include a quantitative goal for an annual increase in SHI-eligible housing units
by at least 0.50 percent of its year-round housing count. Communities that meet their annual goal can
request a one-year certification of compliance (often referred to as safe harbor) with DHCD, and
communities that reach a 1.0 percent target are eligible for a two-year certification of compliance.
Achieving this “safe harbor” threshold and receiving a one- or two-year certification allows
communities to have a more flexible approach to managing the comprehensive permit process,
despite being below the overall 10 percent target for SHI units.52 To meet this threshold for one-year
certification of this plan, Brewster currently would need to produce twenty-four new SHI-eligible
affordable housing units in a given calendar year based upon the 2010 Census year-round housing
count, and forty-eight units for a two-year certification.53
BREWSTER’S HOUSING GOALS
The following four major qualitative goals are based on the preceding Housing Needs Assessment
and community participation. They are broken up into more specific “subgoals,” but this HPP’s four
major goals serve to address the breadth of Brewster’s housing needs. The next section of this plan
outlines specific strategies for achieving these goals over the next five years.
GOAL 1. Increase and diversify year-round housing options in Brewster for a range of income
levels and household types.
• Increase the supply of market-rate and affordable rental housing for all types of households,
such as young singles and couples, families, and older adults.
51 760 CMR 56.03(4)(c) and corresponding DHCD Housing Production Plan Guidelines, October 2020.
52 If a community is certified compliant, decisions made by the Zoning Board of Appeals to deny a comprehensive permit will be
deemed “consistent with local needs” by the Housing Appeals Committee and will be upheld as a matter of law.
53 While the 2020 Census count for total housing units has been released as of publication of this plan, the year-round housing
count has not. Appendix D offers three methodologies for calculating an estimated annual goal, all of which arrive at a similar
threshold (24-26 units per year). However, these estimates are meant to be a guide, as DHCD ultimately will determine the
threshold based upon the 2020 Census year-round housing count when it becomes available.
Town of Brewster
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57
• Diversify housing types and forms to meet local needs.
• Ensure an adequate supply of housing that is affordable and accessible to older adults and
people with disabilities.
• Integrate affordable housing into existing neighborhoods and developments through infill,
reuse or repurposing of existing buildings, and the redevelopment of underutilized buildings
or properties.
• Review and update Brewster’s zoning and other housing regulations and policies to support
development that increases fair, affordable housing and housing choice.
GOAL 2. Prevent displacement of current residents and facilitate housing mobility for
households looking to move within or into Brewster.
• Preserve Brewster’s existing supply of year-round rental housing.
• Ensure that older adults can age in place or within the community.
• Provide direct assistance to income-eligible households experiencing housing insecurity or
looking for a new home.
• Preserve Brewster’s existing affordable housing stock.
GOAL 3. Align development with the principles of the Town’s Local Comprehensive Plan/Vision
Plan.
• Build support for addressing housing needs through partnerships with groups and
organizations connected to each of the Vision Plan’s ten core elements.
• Ensure adequate staff capacity and other resources for addressing the housing-related goals
and actions of the Vision Plan.
• Continue to thoughtfully address concerns about issues sometimes seen as conflicting with
the development of fair, affordable housing.
• Balance housing goals with protection of the natural environment by targeting housing
production in and near areas where development already exists; in denser development
nodes; or in areas with higher “walkability scores” and multimodal transportation
opportunities.
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GOAL 4. Continue to build capacity to produce housing through staffing, funding, regional
partnerships, advocacy and education, and relationships with nonprofit and for-profit
developers.
• Ensure regular collaboration between housing staff and other departments, Town bodies,
regional entities, housing developers, and other relevant groups.
• Explore additional funding sources to support housing-related initiatives.
• Build awareness of affordable and fair housing needs within Brewster and the larger region,
as well as Brewster’s role in addressing these issues.
• Investigate and leverage available federal, state, and regional housing funds and resources.
ALIGNMENT WITH REGIONAL GOALS
In 2018, the Cape Cod Commission, Barnstable County’s regional planning and regulatory agency,
published its fifth Regional Policy Plan to outline a regional vision for Cape Cod. 54 This vision is based
upon three systems – natural systems, built systems, and community systems. Housing is primarily
addressed as part of the “community system” umbrella, although topics relevant to housing are
discussed in all three systems. The goals of this Housing Production Plan align with the CCC’s
Regional Policy Plan’s Housing Goal and supporting objectives, which are as follows:
Regional Policy Plan Housing Goal: To promote the production of an adequate supply of ownership and
rental housing that is safe, healthy, and attainable for people with different income levels and diverse
needs.
Supporting Objectives:
1. Promote an increase in housing diversity and choice.
2. Promote an increase in year-round housing supply.
3. Protect and improve existing housing stock.
4. Increase housing affordability.
Additionally, the CCC is embarking on a Regional Housing Strategy (an action described in the 2018
Regional Policy Plan) and Regional Housing Suitability Analysis, with both initiatives including
specific strategies also incorporated in this HPP. The next section of this plan outlines these strategies
and others — twenty-nine in total — that will enable the Town to achieve its housing goals and meet
local needs.
54 Cape Cod Commission, Cape Cod Regional Policy Plan: Framing the Future, 2018.
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Housing Production Plan Strategies
As described in the previous section, DHCD encourages cities and towns to prepare, adopt, and
implement a Housing Production Plan that demonstrates an annual increase in Chapter 40B (SHI-
eligible) units equal to or greater than 0.50 percent of the community’s year-round housing units.
However, as noted elsewhere in this plan, Brewster’s housing challenges go well beyond the
affordability needs that Chapter 40B intends to address. Just as Brewster has many housing choice
problems, it also has options available to address them. Namely, removing regulatory barriers to
housing production, providing adequate resources to support housing initiatives, coordinating
housing efforts with local comprehensive and other planning efforts, continuing to educate leaders
and community members about housing needs, and collaborating with regional partners will all be
important components of a successful housing program. Through this Housing Production Plan,
Brewster can plan strategically and creatively about how to address its affordable housing needs.
PROGRESS SINCE 2017
Brewster has made significant progress implementing its 2017 Housing Production Plan and
establishing a robust housing program. Steps taken in fulfillment of the 2017 HPP strategies include:
ü Hiring a housing coordinator with CPA and Town funds (2017)
ü Creating a municipal affordable housing trust and supporting with CPA and Town funds
(2018)
ü Adopting the current Accessory Dwelling Unit and Accessory Commercial Dwelling Unit
bylaws (2018)
ü Planning for the protection of existing SHI units through a $500,000 CPA allocation to the
Trust (2019)
ü Supporting chapter 40B-permitted projects to create sixteen Habitat for Humanity ownership
homes (Paul Hush Way, fourteen units completed in 2020; Red Top Road, two units permitted
in 2021) and thirty affordable rental units (Brewster Woods; expected to be ready for
occupancy in 2022)
ü Establishing a policy (via the Select Board) to allocate 50 percent of the new short-term rental
revenue to the Trust (2021)
ü Teaming with Dennis and Wellfleet to apply for a $1,300,000 regional Housing Rehabilitation
and Childcare Community Development Block Grant (CDBG) and continuing this program
into its second year (2021-2022)
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ü Redeveloping the former Wingate Rehabilitation Center into 132 rental units — 27 of which
are affordable — for adults 55+ through a public-private partnership with Elevation Financial
(2021-2022)
ü Using CPA funds to support regional housing development, including: FORWARD in Dennis,
a housing development for adults with autism (2019, $80,000); a veterans’ home in Dennis for
the Cape and Islands Veterans Outreach Center (2021, $50,000); and most recently, Pennrose
in Orleans (2022, $105,000).
ü Contributing CPA funding to support Community Development Partnership’s Housing
Institute, a training program to equip local officials and residents with knowledge to support
the creation of more year-round housing in Brewster and the region (2018-2022)
ü Issuing an RFP for the development of a 16+ acre parcel of Town-owned land off Millstone
Road (2021) and accepted a proposal to develop a compact, energy-efficient neighborhood of
forty-five rental units in twelve buildings (2022)
LOOKING FORWARD: 2022-2027 STRATEGIES
Organization
The actions outlined in this plan fall into overarching groups modeled after the categories of the 2017
HPP (Regulatory Strategies, Funding & Assets, Education & Advocacy, and Local Policy & Planning) with
the addition of a fifth category, Community Resources & Local Support. In addition, 760 CMR 56.03(4)(d)
outlines requirements for strategies that will facilitate the production of SHI-eligible housing units,
although plans can include additional strategies based on local need. The strategies of this HPP
dovetail well with DHCD’s requirements, as shown in Table 23, which outlines the relationship
between these two organizational frameworks. The Approach to Implementation section of this plan
includes Table 24, which summarizes the HPP strategies along with likely responsible parties,
timeframes, and more, while each strategy is detailed further in the final Strategies Explained section.
Town of Brewster
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Table 23. Relationship Between Regulatory Framework & Brewster HPP Strategies
760 CMR 56.03 4(d)(1) 4(d)(2) 4(d)(3) 4(d)(4) 4(d)(5) Other
DHCD Housing
Production Plan
Regulatory
Requirement
The identification of
zoning districts or
geographic areas in
which the municipality
proposes to modify
current regulations for
the purposes of
creating SHI Eligible
Housing developments
to meet its housing
production goal.
The identification of
specific sites for
which the
municipality will
encourage the filing
of Comprehensive
Permit applications.
Characteristics of
proposed residential or
mixed-use developments
that would be preferred
by the municipality
(examples might include
cluster developments,
adaptive re-use, transit-
oriented housing, mixed-
use development,
inclusionary housing, etc.).
Identification of
municipally owned
parcels for which the
municipality commits
to issue requests for
proposals to develop
SHI Eligible Housing.
Participation in
regional
collaborations
addressing housing
development.
While these strategies fall
outside of the regulatory
framework because they do
not address production of
SHI-eligible units, they
nonetheless address
existing housing needs
including capacity as well as
support for households
struggling to remain in or
move to Brewster.
Regulatory
Reform
Strategies 1-6 ✓ Strategies 1-3 ✓ Strategies 4-5 ✓ Strategy 6
Funding & Assets
Strategies 7-13 ✓ Strategy 11 ✓ Strategies 12-13 ✓ Strategy 7 ✓ Strategies 8-10
Education
& Advocacy
Strategies 14-15
✓ Strategies 14-15
Local Policy
& Planning
Strategies 16-19
✓ Strategy 16 ✓ Strategy 17 ✓ Strategies 18-19
Community
Resources &
Local Support
Strategies 20-22
✓ Strategies 20-22
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APPROACH TO IMPLEMENTATION
The table below summarizes the plan strategies, each of which are summarized further in the next section. (summarized further in the next outlines
the potential responsible parties for each strategy, as well as possible time frames for select strategies. The final two columns on the right indicate
whether the strategy follows a recommendation from the 2017 Housing Production Plan, and whether the strategy is connected to DHCD guidelines
for Housing Production Plans (as outlined in Table 23 of this HPP).
Table 24. Implementation Table
Implementation Strategies
POTENTIAL
Responsible Entities
POTENTIAL
Time Frame
TBD
Follow-up to
2017 HPP
Strategy #
Meets DHCD
Guidelines for
HPP Strategies Lead Support
Regulatory Reform
#1
Reevaluate the existing ADU and ACDU bylaws and other
references to accessory apartments; explore amendments to
streamline these provisions and improve their efficacy.
Planning
Building
BHP
HC
SB
Early
(discussed) #1 ✓
#2 Amend zoning to clearly allow mixed uses that include housing
in business-zoned areas. Planning BHP, SB
HC, TA TBD #2
✓
#3
Reevaluate the existing multifamily dwelling bylaw (Section
179-34) and consider changes and other regulatory measures
to facilitate multi-unit residential development.
Planning HC, TA
SB TBD #5
✓
#4
Explore measures to require or encourage the inclusion of
affordable units in residential development over a certain
number of units.
Planning HC, TA
SB
TBD
#4
✓
#5 Allow and incentivize the adaptive reuse of existing buildings
for the creation of affordable and mixed income housing.
Planning
Building
TA, SB
HC
ZBA TBD #6
✓
#6
Utilizing the findings of the ongoing Integrated Water Resource
Management Plan, continue to identify appropriate wastewater
treatment systems to enable the creation of denser housing
development that can support the inclusion of affordable units.
Interdepartmental:
Health
TA, SB,
Planning Natural
Resources
HC TBD --
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Table 24. Implementation Table
Implementation Strategies
POTENTIAL
Responsible Entities
POTENTIAL
Time Frame
TBD
Follow-up to
2017 HPP
Strategy #
Meets DHCD
Guidelines for
HPP Strategies Lead Support
Funding & Assets
#7
Continue to work with nearby communities on the Cape by
pooling CPA funds and other resources to construct affordable
housing in suitable locations throughout the region and meet
regional housing needs.
CPC
TA
HC
SB
BHP
BAHT Ongoing #9 ✓
#8 Develop a five-year financial plan for the BAHT and determine
whether additional funding streams should be explored.
BAHT & Finance
(FT) Team & SB
HC
CPC
First
(In process) #7 & #8
#9
Based upon the BAHT five-year financial plan, explore other
funding opportunities to support housing initiatives at a range
of income levels.
BAHT, CPC, FT, SB,
TA & HC After #8 #7
#10
Explore local property tax incentives for the creation of
affordable housing, such as offering a reduction of property
taxes to an owner renting an affordable unit.
SB
TA
Finance
Assessor
HC
BAHT
TBD #8
#11 Develop criteria for assessing a property’s suitability for the
creation of affordable and attainable housing.
Planning
HC
BAHT
Building
Health
Cons
Comm,
Open Space
TA, SB
First #15 ✓
#12
Inventory existing Town-owned land using the criteria
developed to determine suitability for housing; develop and
issue an RFP for the development of affordable and attainable
housing on properties identified as suitable for housing
development.
Planning
HC
TA
BAHT
Cons Comm
Assessor
SB
Open Space
After #11 #15 ✓
#13
If deemed necessary based upon the findings of the Town-
owned land inventory, develop and issue an RFP for the
acquisition of privately held land for the creation of affordable
and attainable housing.
BAHT
TA
HC
Planning
SB After #12 -- ✓
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Table 24. Implementation Table
Implementation Strategies
POTENTIAL
Responsible Entities
POTENTIAL
Time Frame
TBD
Follow-up to
2017 HPP
Strategy #
Meets DHCD
Guidelines for
HPP Strategies Lead Support
Education & Advocacy
#14 Develop a collaborative housing education plan that connects
to the Town’s Local Comprehensive Plan (LCP).
BAHT
BHP
HC
Vision
BHA
COA
Early
(In process) #13 & #16
#15
Continue to ensure regular participation by staff and members
of Town bodies in available trainings on housing-related issues
including fair housing, local and regional housing needs,
comprehensive permit administration, and other relevant
topics.
HC
BAHT
BHP
Planning
CPC
ZBA
SB
Finance
Ongoing #13
Local Policy & Planning Strategies
#16 Continue to make good use of 40B, including the Local Initiative
Program (LIP), as a vehicle for creating affordable housing.
BHP
BAHT
HC, TA
SB
ZBA
CPC
Ongoing
(Brewster
Woods,
Habitat)
#14 ✓
#17
Encourage public/private partnerships to facilitate the
collaborative production of affordable housing to meet a range
of community needs.
BAHT
BHP
HC
TA
SB
Planning
CPC
TBD -- ✓
#18
Continue to monitor the impacts of short-term rentals on the
availability of year-round rental units; review and consider
changes to local policies accordingly.
SB
Finance
TA
BAHT
HC Ongoing --
#19
Increase housing staff capacity to ensure continued and
consistent collaboration with the Building, Conservation,
Health, and Planning Departments.
TA
Finance
HC
Interdepartmental:
Building
Planning
TBD #12
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Table 24. Implementation Table
Implementation Strategies
POTENTIAL
Responsible Entities
POTENTIAL
Time Frame
TBD
Follow-up to
2017 HPP
Strategy #
Meets DHCD
Guidelines for
HPP Strategies Lead Support
Community Resources & Local Support
#20
Continue the CDBG-funded housing rehabilitation program to
enable income-eligible homeowners to make critical home
repairs.
HC
TA
Finance
Building
SB Ongoing --
#21 Evaluate current CPC-funded housing initiatives and consider
adjusting to meet current needs.
BAHT
CPC, SB
HC
BHP
Early/
Ongoing
(Discussed)
--
#22
Explore other opportunities for direct support for eligible
households, including partnerships with local non-profits and
housing assistance providers.
HC
BHP
BAHT
COA
CPC
BHA
TBD --
Notations:
BAHT- Brewster Affordable Housing Trust FT- Finance Team
BHA- Brewster Housing Authority HC- Housing Coordinator
BHP- Brewster Housing Partnership SB- Select Board
COA- Council on Aging TA- Town Administration
CPC- Community Preservation Committee ZBA- Zoning Board of Appeals
Cons Comm- Conservation Committee
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STRATEGIES EXPLAINED
Regulatory Reform
STRATEGY 1. Reevaluate the existing ADU and ACDU bylaws and other references to accessory
apartments; explore amendments to streamline these provisions and improve their efficacy. The Town’s
current ADU bylaw (Section 179-42.2) allows homeowners in the Town’s residential districts to add
an accessory dwelling unit (ADU) by right on lots over 30,000 square feet, and by special permit on
smaller lots, lots within the C-H or V-B districts, or within certain water protection areas.55
Additionally, the ACDU bylaw (Section 179-42.3) allows property owners to add an accessory
dwelling unit to a commercial property by special permit in the C-H and V-B zoning districts. Prior
to the addition of this bylaw in 2018, Brewster’s zoning allowed affordable accessory dwelling and
commercial dwelling units (AADUs and AACDUs) that had to meet the bylaw’s definition of
“affordable housing,” making it very difficult for homeowners to create such a unit. This 2018 bylaw
amendment also removed a provision in Section 179, Table 2 (Area Regulations), Footnote 13 that
required “accessory apartments” allowed by special permit to be rented to immediate family members
or healthcare professionals providing service to the family members.
While these amendments have made it easier for homeowners to create ADUs, the Town should
reexamine the current bylaw and consider whether some current provisions limiting its use could be
removed. As an example, the current bylaw requires that an ADU not be more than 40 percent of the
primary residence or 900 square feet, whichever is smaller. This 40 percent limit may preclude owners
of smaller homes from creating an ADU. Other Lower Cape communities either do not have a
percentage limitation (only a square footage cap) or have a 50 percent limit, which is in line with the
Cape Cod Commission’s model ADU bylaw.56 Lastly, keeping the special permit provision for
“accessory apartments” as a footnote in the zoning bylaw’s Area Regulations may make the process
confusing to homeowners, particularly because this provision does not include the 40 percent limit
and allows a different maximum unit size of 600 square feet. The Town may wish to consolidate any
references in the bylaw to accessory residential units to avoid duplication or confusion.
STRATEGY 2. Amend zoning to clearly allow mixed uses that include housing in business-zoned areas.
While Brewster has a limited supply of mixed-use properties that include some balance of residential
and commercial uses, the Town does not have a mixed use bylaw that explicitly defines and allows
commercial/residential mixed use in specific zoning districts.57 More clearly allowing mixed use in
the C-H or V-B districts and building it into the Use Regulations and Area Regulations as a distinct
55 Sections 179-42.2, Paragraph B: “An ADU may be located within a Zone II (Zone of Contribution to a Public Drinking Water
Well), in the watershed of the Herring River, or the watershed to Pleasant Bay, subject to approval of a Special Permit by the
Zoning Board of Appeals. All ADUs within these areas shall be required to install advanced nitrogen treatment septic systems, if
deemed necessary.”
56 Cape Cod Commission, “Inventory of Accessory Dwelling Unit Provisions by Town.” Updated November 2021. Available at:
https://www.capecodcommission.org/resource-
library/file/?url=/dept/commission/team/Website_Resources/housing/ADU_Table_Nov2021.pdf
57 Outside of an existing reference in the underutilized Planned Residential Development provision
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use could provide an avenue for creating much-needed additional rental units. While the ACDU
bylaw allows the creation of an accessory dwelling unit within or adjacent to a commercial building,
it only does so as an accessory use and within the area requirements for commercial buildings
currently defined under Table 2, Area Regulations. Creating a “mixed use” designation as a use
category would allow the Town to consider specific area regulations suitable for mixed use, and could
potentially also allow “top of the shop” housing units that are not accessory to the commercial use
below it, but could be divided from the commercial space below and owned separately.
STRATEGY 3. Reevaluate the existing multifamily dwelling bylaw (Section 179-34) and consider changes
and other regulatory measures to facilitate multi-unit residential development. As described in the
Barriers Analysis of this plan, the Town’s current multifamily dwelling bylaw has density and lot size
requirements that are unlikely to result in multi-unit residential development, demonstrated by the
fact that this portion of the bylaw has not been exercised.58 In addition, “multifamily dwellings”
(defined in the bylaw as a building containing three or more dwelling units) are only allowed by in
the C-H district by special permit. The Town could consider revisiting the current density and lot size
requirements for Section 179-34, as well as expanding the locations where such development is
allowed.
The Town could also consider developing residential design standards for multi-unit housing. Design
standards have the benefit of addressing concerns that come from poor design rather than density
itself, as visual compatibility with a neighborhood is often cited as an important consideration for
residential development. This action aligns with the Cape Cod Commission’s current work
developing a Regional Housing Strategy, which is anticipated to include the development of
residential design guidelines to “create more diversity in housing options and types . . . in forms that
still complement and fit in with the character of the region.”59
STRATEGY 4. Explore measures to require or encourage the inclusion of affordable units in residential
developments over a certain number of units. Such measures can include the adoption of an
Inclusionary Zoning (IZ) bylaw, which requires the provision a minimum percentage of affordable
units in residential developments over a specified size. Adopting an IZ bylaw may be particularly
important if the Town moves to implement the previous recommendation to amend the multifamily
dwelling bylaw, which could spur the production of such units; by establishing an IZ bylaw, the Town
can ensure that multi-unit residential development occurring under a revised Section 179-34 — or any
other residential development over a certain size — would include affordable units. As part of this
review, the Town could also explore whether a new IZ bylaw should include a provision for
“payments in lieu of units” (PILUs), whereby developers can pay an established fee to the Affordable
Housing Trust in lieu of providing the required number of affordable units.
58 There is one large multi-unit development within the C-H district (King’s Landing) and one property assessed as a smaller
apartment building; both of these multi-unit properties were built prior to the adoption of the Town’s Zoning Bylaw in 1979.
59 Cape Cod Commission, “Regional Housing Strategy Housing Work One Pager,” May 2022 Draft. (Project elements subject to
change.)
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Alternatively (or in addition to IZ), the Town could enrich the underutilized Major Residential
Development (Section 139-35.2) or Planned Residential Development (Section 179-36) bylaws to
encourage the inclusion of affordable units, as suggested in the 2017 HPP. The Town could also
activate the “reserved” Affordable Multifamily Dwelling Units bylaw (Section 179-42.1[C][3]), which
the Use Regulations table indicates would be allowed by right (as opposed to special permit) in the C-
H district. However, as pointed out in the 2017 HPP, this should also involve revisiting the limitation
on number of bedrooms in the definition of “Affordable Multifamily Dwelling Units (AMDU)” in
Section 179-2 to eliminate potential fair housing conflicts. Additionally, reference to immediate family
should be removed from the definition of “Affordable Housing" in Section 179-2 to avoid confusion
about the intent of the bylaw.
STRATEGY 5. Allow and incentivize the adaptive reuse of existing buildings for the creation of affordable
and mixed income housing. In 2020, the Zoning Board of Appeals granted Elevation Financial a use
variance to develop the former Wingate Rehabilitation Center into housing. While this successful
public-private partnership will lead to the creation of 132 units of 55+ housing (27 units of which are
affordable), the legal mechanism by which this was accomplished is difficult to replicate.
Massachusetts law outlines the specific findings a ZBA must make to grant a variance, and generally
it is challenging to meet these requirements. Instead, the Town could explore allowing conversion of
existing structures to residential uses by special permit or incentivizing adaptive reuse of existing
structures to facilitate housing production.
STRATEGY 6. Utilizing the findings of the ongoing Integrated Water Resource Management Plan, continue
to identify appropriate wastewater treatment systems to enable the creation of denser housing
development that can support the inclusion of affordable units. The Town is currently in Phase III of its
Integrated Water Resource Management Plan, or IWRMP, a long-term project to develop an integrated
approach for the protection and restoration of the Town’s waters. This phase of the project will address
water resources planning, including an evaluation of wastewater management alternatives and bylaw
updates to implement the stormwater management recommendations of Phase II. The findings of this
project will help inform solutions that may enable the provision of denser development alongside
protection of the environment.
Funding & Assets
STRATEGY 7. Continue to work with nearby communities on the Cape by pooling CPA funds and other
resources to construct affordable housing in suitable locations throughout the region and meet regional
housing needs. Section 5(b)(1) of the Community Preservation Act legislation reads: “The community
preservation committee shall study the needs, possibilities and resources of the city or town regarding
community preservation, including the consideration of regional projects for community
preservation.” (Emphasis added.) Recognizing that addressing regional housing creation benefits all
area communities, Brewster has contributed CPA funds toward several regional housing initiatives in
recent years, including funding for homes for adults with autism in Orleans (Cape Cod Village, 2016)
and Dennis (FORWARD, 2019), a veterans’ home in Dennis (for CIVOC, 2021), and most recently
Town of Brewster
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toward Pennrose in Orleans, a redevelopment project that will provide sixty-two rental units. The
developer is proposing 65 percent local preference and 10 percent regional preference, the breakdown
approved by DHCD for the Village at Nauset Green in Eastham. Based on DHCD local preference
definitions, applicants who work in Orleans, for the Town of Orleans, or whose children attend the
Nauset Regional Middle or High School, are considered part of the local preference pool even if they
do not live in Orleans.
STRATEGY 8. Develop a five-year financial plan for the Brewster Affordable Housing Trust and determine
whether additional funding streams should be explored. Both the Select Board and Affordable Housing
Trust identify this as a key priority; the Select Board’s FY2022-2023 Strategic Plan includes Goal H-1
to “Identify Affordable Housing Trust operating/capital needs and develop funding plan,” and the
Affordable Housing Trust’s Key Priorities for 2022 include developing a “5-Year Financial Plan for the
Trust.”
STRATEGY 9. Based upon the BAHT five-year financial plan, explore other funding opportunities to
support housing initiatives at a range of income levels. Depending on the needs identified through the
BAHT’s financial plan, the Town can also look at creative ways to increase funding for housing
initiatives. As an example, the BAHT could establish a “Housing Opportunity Fund” and regularly
apply for CPA funds to build and replenish this resource annually. While Brewster has made excellent
use of CPA funds for housing initiatives, having more substantial funds available would enable the
BAHT to act quickly on property acquisition opportunities that may arise. The BAHT would still have
to apply to annually for such funds, but once these CPA funds were awarded to the Trust, they would
not need to be reappropriated at Town Meeting for a specific purpose. The Town of Hingham follows
this practice and has for several years, with their AHT stating in their 2021 CPA application, “Often
unknown opportunities to create new affordable housing units arise and require immediate
responses…. Replenishing the ‘opportunity fund’ will allow the Trust to respond quickly to those
opportunities…” The Town could also work to raise resident awareness that the BAHT can receive
tax-deductible gifts in the form of “real property, personal property or money, by gift, grant,
contribution, devise or transfer from any person, firm, corporation or other public or private
entity…“60 Strategy 14 discusses developing a collaborative housing education plan, which could
include a “fundraising” component that explains how residents can make such tax-deductible gifts to
the BAHT, sets fundraising goals, describes how funds and other gifts will be used, and so forth.
The Town can look to support the mission of the BAHT and the income levels it is intended to serve
(up to 110 percent AMI), as well as potentially funding housing initiatives beyond this level. While the
primary purpose of a Housing Production Plan is to increase the share of SHI-eligible units within a
community and work toward the state’s 10 percent minimum goal, there are also substantial housing
needs outside of these income levels because the supply of housing — particularly rental housing —
does not meet the demand. Provincetown addressed this need by passing of a home rule petition to
establish its Year-Round Market Rate Rental Housing Trust to “create and preserve year-round rental
60 MGL c. 44A, § 55C: Municipal Affordable Housing Trust
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units in the town of Provincetown including, but not limited to, market rate units for the benefit of
residents of the Town.” The Legislature approved the Town’s home rule petition, and the Trust was
officially established in 2016. Chatham has recently taken a similar step, approving three home rule
petitions in 2021 relating to funding the creation of housing for households earning up to 200 percent
of the area median income. One such measure was the local approval of a real estate transfer tax of 0.5
percent on the sale of homes over $2,000,000, paid by the purchaser, with proceeds going into a
“Housing Fund” that would have more leeway than the CPC or AHT in terms of income levels served.
In 2021, several other Massachusetts communities approved the submission of home rule petitions
relating to real estate transfer fees to the Legislature, although all of these petitions are pending at the
state level.
Because Brewster’s housing needs at lower income levels are the greatest as demonstrated by the
Needs Assessment, the Town should take care not to propose diverting existing funding sources away
from these needs and instead may wish to consider new funding solutions for income levels over 80
percent.
STRATEGY 10. Explore local property tax incentives for the creation of affordable housing, such as offering
a reduction of property taxes to an owner renting an affordable unit. By offering to reduce property taxes
for property owners that voluntarily participate in meeting the Town’s affordable housing needs,
Brewster can convert existing units to affordability fairly quickly and easily. Provincetown has had
affordable housing property tax exemptions of this type on the books for years. The law, passed in
2002, makes residential properties occupied by low-income households exempt from taxes. If only
some of a parcel is occupied by an eligible household, taxes are reduced proportionally to the
percentage of the square footage of the structure occupied by that household. Unlike many other
strategies in this section, a Provincetown-style tax incentive would not necessarily involve any formal
deed restrictions, meaning that affordable units created under such a law would not count towards
Brewster’s Subsidized Housing Inventory, but still can address important local needs. In addition,
such a measure would require Town Meeting approval to submit a home rule petition to the
Legislature.
Another way for a town to utilize property taxes to incentivize affordable housing development is
through tax increment financing (TIF). This approach targets new development by allowing a
property owner to waive or reduce property taxes for a set period, which can then be phased back in
gradually, in exchange for including some number of affordable units. TIFs require the establishment
of TIF-designated area approved by the Economic Assistance Coordinating Council, which essentially
requires that the area present “exceptional opportunities for economic development.” Such a measure
may be dependent on the direction of the Vision Planning process with regards to establishing a true
the Town Center or Town Centers.
STRATEGY 11. Develop criteria for assessing a property’s suitability for the creation of affordable and
attainable housing. Once developed, such criteria can be used in a variety of ways – as part of an RFP
for acquiring land for housing; to assess Chapter 61 properties being considered for acquisition; or for
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evaluating current Town-owned properties or privately held properties of particular interest for their
potential to create housing. Massachusetts Housing Partnership has developed a list of considerations
for determining the feasibility of land for housing development, and the Cape Cod Commission is
also planning to develop criteria to screen parcels for housing development suitability as part of their
current Regional Housing Suitability Analysis project. The Town may wish to build upon these
resources or create its own unique criteria to support the next two strategies of this plan.
STRATEGY 12. Inventory existing Town-owned land using the criteria developed to determine suitability
for housing; develop and issue an RFP for the development of affordable and attainable housing on
properties identified as suitable for housing development. This process was recently undertaken on a
16+ acre of Town-owned land off Millstone Road that was previously landlocked until the Town used
CPA funds in 2018 to acquire an access parcel on Millstone Road. The Town then undertook a
community engagement process to determine criteria that would ultimately inform the development
of an RFP to develop housing on the site. This RFP was issued in 2021 and the Town has since accepted
a proposal to develop forty-five units of rental housing in twelve buildings. The Town could
undertake a similar process for other Town-owned properties deemed suitable for housing, or use the
findings of the Millstone Road community engagement process as a starting point for RFP criteria for
other parcels.
With the recent acquisition of the two Sea Camps properties (the 66-acre Pond Parcel extending to
Long Pond and the 55-acre Bay Parcel extending from Route 6A to Cape Cod Bay), Brewster has a
unique opportunity to consider the use of Town-owned properties for the creation of a substantial
amount of housing. In particular, the Bay Parcel has existing structures that could be explored for
housing, as does the adjacent Town-owned Spruce Hill property, which was acquired by the Town in
1985 and is managed by the Brewster Conservation Commission. The Spruce Hill property has one
unoccupied home on it, built in 1890 and previously leased by the Brewster Historical Society. In
addition, the Brewster School Committee is currently considering whether to consolidate the Town’s
two elementary schools. Two of the three options outlined in the Town’s recently completed
Elementary Schools Master Plan propose closing one of the two schools and having all elementary
students (grades PK-5) in one building.61 Should the Brewster School Committee decide to move
forward with one of these consolidation options, the vacant school building could be considered for
housing.
STRATEGY 13. If deemed necessary based upon the findings of the Town-owned land inventory, develop
and issue an RFP for the acquisition of privately held land for the creation of affordable and attainable
housing. The Town of Nantucket developed a standard RFP for the acquisition of land for housing and
reissues the RFP at regular intervals. Brewster could follow a similar strategy if the inventory of
currently held Town-owned land reveals a lack of properties currently available to the Town for the
creation of affordable housing. The Town could also expand its analysis of site suitability to include
61 Town of Brewster, Elementary Schools Master Plan. Prepared by Habeeb & Associates Architects for the Town of Brewster,
December 31, 2021.
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privately held property and maintain dialogue with property owners so that both parties are prepared
to act in the event that a desirable property that meets the criteria described in Strategy 15 becomes
available.
Education & Advocacy
STRATEGY 14. Develop a collaborative housing education plan that connects to the Town’s Local
Comprehensive Plan. Building upon Brewster’s 2018 Vision Plan, the Town is currently developing a
Local Comprehensive Plan following the guidelines of the Cape Cod Commission. The Vision
Planning Committee has centered their work around ten building blocks – Local Economy, Housing,
Water Resources, Open Space, Governance, Community Infrastructure, Coastal Management, Climate
Mitigation, Community Character, and Solid Waste Management. While housing has its own building
block, housing needs and solutions relate to all of the LCP’s core elements. Tying the Town’s housing
program and related educational initiatives to the Town’s LCP ensures continuity of planning efforts
and can build community awareness of the connection between housing and many other local and
regional concerns.
As part of this education plan, the Town can consider hosting an annual Housing Forum and inviting
regional partners to cohost or collaborating and co-sponsoring existing regional opportunities. The
BAHT has included hosting an annual forum (at minimum) as a priority initiative for FY2022-2023, in
addition to holding or participating in other community housing educational initiatives. At the local
level, the BAHT could partner with the Brewster Housing Partnership and Brewster Housing
Authority to co-sponsor such an effort, which could be further enriched by inviting regional partners
or representation from other Lower Cape towns.
STRATEGY 15. Continue to ensure regular participation by staff and members of Town bodies in available
trainings on housing-related issues including fair housing, local and regional housing needs, comprehensive
permit administration, and other relevant topics. Since 2018, CPC funds have helped fund the Cape
Housing Institute, a training program for local officials and interested residents in support of the
creation of more year-round housing in Brewster and the Lower Cape. Over seventy-five Town staff
and residents have participated in this and other educational trainings and workshops since the 2017
HPP. The Town should continue to encourage this commendable level of involvement, both among
staff and Brewster residents.
Local Policy & Planning
STRATEGY 16. Continue to make good use of Chapter 40B, including the Local Initiative Program (LIP), as
a vehicle for creating affordable housing. As shown in Appendix C, “Brewster 40B and Affordable
Housing Table,” Brewster has a strong track record of using 40B as a tool to create both affordable
ownership and rental opportunities in partnership with developers. Habitat for Humanity’s Red Top
Road project, permitted in 2021 as a LIP project, will create two affordable ownership units and
provides the most recent example of Brewster’s success using 40B in a cooperative manner. The Local
Initiative Program, or LIP, is often referred to as the “Friendly 40B” process because the municipality
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and developer submit a joint application to DHCD. If the LIP application is approved, DHCD issues
a project eligibility letter so that the developer can apply for a Comprehensive Permit application with
the Zoning Board of Appeals. Thus, going through the LIP process ensures that the Town is involved
in shaping project plans before a developer applies for a Comprehensive Permit.
To facilitate this effort, the Town could educate owners of nonconforming lots that are otherwise
unbuildable under zoning about the possibility of partnering with mission-based organizations like
Habitat for Humanity or Housing Assistance Corporation of Cape Cod to develop affordable housing
through the LIP comprehensive permit process. Assessor’s records indicate that there are over 300
parcels considered “undevelopable residential land.” Typically, this designation is used for parcels
that do not meet lot size or frontage requirements as opposed to indicating an environmental
constraint. These parcels appear to be scattered throughout Town with varying degrees of access from
roadways. If staff capacity allows, the Town could inventory these lots and assess their suitability for
housing depending on their degree of nonconformity, neighborhood context, environmental
concerns, and other considerations.
STRATEGY 17. Encourage public/private partnerships to facilitate the collaborative production of
affordable housing to meet a range of community needs. The business community in the Lower Cape
clearly recognizes the need for affordable housing to sustain the local economy and has a vested
interest in partnering with Towns to find solutions. As a somewhat recent example, in 2017 the
Planning Board granted a special permit to Ocean Edge, allowing the company to develop fourteen
modular homes to house 84 seasonal workers.62 While housing for seasonal workers may not directly
relate to the housing needs of year-round households at face value, providing for seasonal housing
can ease the already-challenging competition for limited rental units and addresses an important
community need nonetheless. More recently, the Zoning Board of Appeals granted Elevation
Financial a use variance in 2020 to develop the former Wingate Rehabilitation Center into Serenity
Apartments at Brewster, a successful public-private partnership that will lead to the creation of 132
units (27 affordable) of 55+ housing.
Nonprofit Community Land Trusts (CLTs) are another example of public/private partnerships that
have created affordable homeownership opportunities in other communities. A community land trust
is a strategy pioneered in urban areas experiencing gentrification that attempts to address the problem
of rapidly growing real estate values pricing existing residents out of their own community. Brewster
is experiencing a similar problem related to the seasonal housing market, where housing units
previously available to residents are purchased by relatively wealthy out-of-towners to serve as
vacation homes. A CLT purchases parcels of land and holds them in perpetuity rather than allowing
them to enter the commercial real estate market. CLT housing differs from most town-facilitated
development in that the Trust retains ownership of the land while selling the houses. Because
homeowners are not buying land, merely leasing it (usually for a long period such as ninety-nine
62 Donna Tunney, “Brewster OKs workforce housing at Ocean Edge,” Wicked Local, October 5, 2017. Available at:
https://www.wickedlocal.com/story/cape-codder/2017/10/06/brewster-oks-workforce-housing-at/64884570007/
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years), the cost of land is removed from the price of the home, resulting in much more affordable
housing than could otherwise be expected. CLT homeowners may even sell their homes for a profit,
allowing their property to function as an investment like any other, albeit at a lower rate of return as
most Trusts limit the amount that their homes may be sold for to keep them affordable. As a nearby
example, the Island Housing Trust in Martha’s Vineyard has created over 60 homeownership
opportunities for income-eligible households.63
STRATEGY 18. Continue to monitor the impacts of short-term rentals on the availability of year-round
rental units; review and consider changes to local policies accordingly. As described in the Needs
Assessment, the increase in short-term rentals and seasonal homes appears to have had a negative
impact on the Town’s already-limited supply of year-round rental units. The degree of this impact is
currently based on estimates rather than actual counts and will become clearer with the full release of
the 2020 Census — although much has changed even in the last two years. Because of the lack of
current data and the uniqueness of the Cape’s housing situation, the Town should consider strategies
to monitor whether a home is used a primary or secondary residence or as a short-term rental unit.
Having a closer handle on these trends will allow the Town to carefully observe changing trends and
their impacts and adjust Town policies if needed.
STRATEGY 19. Increase housing staff capacity to ensure continued and consistent collaboration with the
Building, Conservation, Health, and Planning Departments. The 2017 HPP recommended hiring a
Housing Coordinator to facilitate the implementation of the plan, an action quickly undertaken by the
Town in 2017 with Town Meeting approval of the use of CPA funds to support this position. Initially,
this position was approved for nineteen hours a week but increased to twenty-five hours in 2020 and
most recently was approved in 2022 for thirty hours per week due to the increased number of housing
initiatives and support services. This HPP includes more strategies than the 2017 plan, and
implementing such a robust housing program requires time and a central “point person” to oversee
the Town’s housing program in coordination with other Town departments.
Additionally, the Town should explore expanding the Town Administration’s budget to fund this
position rather than doing so through annual application to the CPC. Not only would this free CPA
funds for additional housing projects, but funding the position through the Annual Budget reinforces
the Town’s commitment to maintaining this important position, implementing this Housing
Production Plan, and serving residents with housing needs.
Community Resources & Local Support
STRATEGY 20. Continue the CDBG-funded housing rehabilitation program to enable income-eligible
homeowners to make critical home repairs. Brewster is entering its second year of a $1.3 million-dollar
regional Community Development Block Grant (CDBG) for housing rehabilitation and childcare. The
funds aid eligible low to moderate income residents, earning up to 80 percent of the area median
income. The housing rehabilitation funds can provide a forgivable deferred 0.0 percent interest loan
63 Island Housing Trust, “Affordable Homes and Rentals.” Available at: https://www.ihtmv.org/affordable-homes-rentals/
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up to $40,000 to make critical home repairs. The BAHT has identified examining the reach of this
program and considering whether the Trust needs to supplement the program as a current priority
initiative.
STRATEGY 21. Evaluate current CPC-funded housing initiatives and consider adjusting to meet current
needs. With the support of CPA funds, the Town currently provides up to $30,000 of grant assistance
for eligible buyers purchasing a home in Brewster. This homebuyer grant program is contingent on
existing funds and is available to households qualifying at 80 percent of area median income who
agree to place a permanent affordable housing deed restriction on the home. The Town could
reevaluate this program and consider adjustments to meet current needs, an effort in line with the
BAHT’s current priority initiative to determine the future of this program.64 Additionally, the Town
offers a Rental Assistance Program, managed by the Housing Assistance Corporation and supported
with CPA funds. Like the homebuyer grant program, this rental assistance program could also be
reevaluated to consider adjustments that could better meet current needs.
STRATEGY 22. Explore other opportunities for direct support for eligible households, including
partnerships with local non-profits and housing assistance providers. Housing Assistance Corporation
and Community Development Partnership both offer a variety of programs for households, including
homebuyer education programs, Rental Assistance for Families in Transition (RAFT), and foreclosure
prevention. In addition, the BAHT’s current priority initiatives suggest revisiting the feasibility of a
“rent-to-own” program; housing authorities that participate in the Homeownership Voucher Program
can use an eligible participant’s Housing Choice Voucher (HCV) — typically used for rental assistance
— to pay for monthly homeownership expenses. The Brewster Housing Authority could also consider
developing what HUD refers to as a “Family Self-Sufficiency (FSS) Program”. As the income of an
individual holding a Section 8 rental voucher increases, their portion of rent is increased due to
program rules. A FSS program takes this difference between the new increased rent and the old rent
and places it into an escrow account that the individual can access upon graduating from the program.
These accumulated funds can help mitigate the costs associated with moving into a new home. Lastly,
the Town can collaborate with energy service providers and nonprofits such as Housing Assistance
Corporation to ensure that Brewster households are taking full advantage of available efficiency
incentives, fuel assistance programs, weatherization services, and other opportunities for reducing
utility costs.
64 Brewster Affordable Housing Trust, “Housing Trust Priority Initiatives for FY 2022-23.” Available at:
https://www.brewster-ma.gov/files/affordableht22.pdf
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Appendices
Summary of Appendices
• Appendix A. Summary of Published Rental Listings from May 2018-2022
• Appendix B. Income Levels and Household Examples, FY2020
• Appendix C. Brewster Comprehensive Permit Projects (40B) Approved Since 2003 &
Additional Reference Information
• Appendix D. Numerical Goal Methodology
• Appendix E. Community Engagement Summary
• Appendix F. Glossary of Housing Terms
Rent Size Beds Baths Bldg Type Listing Month Listing Year
$1,975 1,400 ft²4 bed 2ba House April 2018
$270 2 bed 1ba Apartment May 2018
$1,750 1,200 ft²3 bed 2ba House June 2018
$7,500 1,100 ft²2 bed 2ba House June 2018
$1,900 3 bed 2ba House August 2018
$1,050 1,100 ft²2 bed 1ba House August 2018
$2,000 1,688 ft²3 bed 2ba House September 2018
$900 900 ft²3 bed 1ba House September 2018
$1,025 studio 1ba Condo October 2018
$1,500 768 ft²2 bed 1ba House January 2019
$1,200 1 bed 1ba Apartment February 2019
$1,500 2,000 ft²4 bed 3ba House May 2019
$2,200 1,300 ft²2 bed 1ba Apartment May 2019
$1,950 1,040 ft²2 bed 1.5ba House May 2019
$2,200 1,500 ft²3 bed 2.5ba House July 2019
$2,600 2,200 ft²4 bed 2.5ba House September 2019
$1,250 1,000 ft²2 bed 2ba Condo September 2019
$1,500 1 bed 1ba Apartment September 2019
$1,175 3 bed 2ba House October 2019
$1,750 800 ft²2 bed 1ba Apartment November 2019
$2,200 1,560 ft²3 bed 2ba House December 2019
$2,400 1,446 ft²3 bed 2ba House December 2019
$1,500 800 ft²2 bed 1ba Cottage/Cabin December 2019
$1,400 579 ft²1 bed 1ba Apartment January 2020
$1,950 3 bed 2ba House March 2020
$1,100 300 ft²studio 1ba Apartment March 2020
$1,800 3 bed 1ba Apartment May 2020
$2,400 2 bed 1ba Apartment May 2020
$1,100 600 ft²1 bed 1ba Condo May 2020
$1,100 1,196 ft²3 bed 2ba Apartment July 2020
$1,500 2,373 ft²3 bed 2ba House July 2020
$1,000 1 bed 1ba Apartment July 2020
$900 1 bed 1ba Apartment August 2020
$3,000 2,100 ft² 4 bed 2.5ba House November 2020
$1,800 424 ft²1 bed 1ba Apartment April 2021
$1,800 424 ft²1 bed 1ba Apartment May 2021
$1,700 579 ft²1 bed 1ba Apartment May 2021
$1,450 4 bed 3ba House June 2021
$1,200 600 ft²1 bed 1ba Condo June 2021
$665 1 bed 1ba Apartment July 2021
$2,000 2,000 ft 4 bed 2ba House August 2021
$3,000 2,400 ft²3 bed 3ba House September 2021
$2,300 1,592 ft²2 bed 2ba House October 2021
$1,500 424 ft²1 bed 1ba House October 2021
$1,416 400 ft²studio 1ba Apartment October 2021
$2,000 1,021 ft²2 bed 2ba Apartment November 2021
$1,100 1 bed 1ba Apartment November 2021
$2,000 2,712 ft²4 bed 3.5ba House December 2021
$900 2 bed 1ba Apartment May 2022
APPENDIX A
Summary of Published Rental Listings from May 2018-May 2022 Source:
Rentometer, May 26, 2022
Income Levels and Household Examples, 2020
FY 2020
Income Limits
Household Size Household Examples
1 2 3 4 5 6 (2 examples per category)
Extremely Low
Income (Up to
30% HAMFI)
$ 20,300 $ 23,200 $ 26,100 $ 29,000 $ 31,350 $ 35,160
•A florist ($23,608) with 2 children
•An office supply store worker ($21,320)
with 1 child
Very Low
Income
(Up to 50%
HAMFI)
$ 33,850 $ 38,650 $ 43,500 $ 48,300 $ 52,200 $ 56,050
•A single home health aide ($28,340 )
•A social worker ($43,368 ) and stay-at-home
parent with 1 child
Low
Income
(Up to 80%
HAMFI)
$ 54,150 $ 61,850 $ 69,600 $ 77,300 $ 83,500 $ 89,700
•An auto repair technician ($33,488) and
restaurant server ($28,236)
•An architectural assistant ($56,472) and
retail worker ($26,936) with 3 children
Moderate
Income
(Up to 100%
HAMFI)
$ 67,688 $ 77,313 $ 87,000 $ 96,625 $ 104,375 $ 112,125
•A construction worker ($62,140) and
masonry contractor ($31,460) with 2
children
•A plumber ($66,092) and personal care
assistant ($16,484) with 1 child
Upper
Moderate
Income
(Up to 120%
HAMFI)
$ 81,225 $ 92,775 $ 104,400 $ 115,950 $ 125,250 $ 134,550
•Computer systems designer ($124,488 ) and
a stay-at-home parent with 3 children
•A single dental hygienist ($71,968)
Sources: HUD FY 2020 Income Limits; 2020 Labor Market Information, Employment and Wages (ES-202)
APPENDIX B
Note that this table uses FY2020 income limits instead of FY2022 because 2020 is the most current year available for the corresponding Employment and Wages information.
Income Levels and Household Examples
Brewster Comprehensive Permit Projects (40B)
Approved Since 2003 & Additional Reference Information
Tables provided by the Brewster Housing Office.
TOWN SUPPORTED DEVELOPMENTS (LAND OR CPA FUNDING)
Date Name Land Size Units Bedrooms % Affordable Funding Additional
2021 Habitat for Humanity
26 Red Top Road
1.34 acres
total
2 new homes (&
original home)
New: 6
bedrooms
New: 100% Land donation,
$100,000 CPA
Comp Permit approved
2021.
2017 Brewster Woods
Brewster Housing
Authority (BHA)
5.82 acres 30 rental
2 buildings
5 units/acre
55
1, 2 & 3
Bedrooms
9.5 beds /acre
100%
Up to 60% AMI
$550,000 CPA
BHA Land Lease
70% open space,
12% buildings,
18% pavement/ parking.
1 unit for manager
or maintenance.
2016 Habitat for Humanity
Paul Hush Way
13.92 acres 14 homes
6- Phase 1
8- Phase 2
1 unit/acre
39
2.8 beds /acre
100%
Up to 65% AMI
$600,000 & $247,000
CPA land 2013 &
2014. & 2016 CPA
$350,000. &
$200,000 in 2018
2007 Habitat for Humanity
James Burr Road
1.06 acre
&
3.4 acres
0pen space
4 homes
4 units/acre
or
1 unit/acre
12
11.3 beds/ acre
or
2.7 beds/ acre
100%
Up to 65% AMI
Town gave land
$95,000 CPA funds
$80,000 HOME funds
Homes clustered on
1 acre; 3.4 acres open
space in perpetuity.
Additional town
owned conservation
land across Slough Rd.
2003 Wells Court
(BHA)
3 acres 24 rental
Seniors,
1 building
8 units/acre
24
(1 bedroom)
8 beds/acre
100%
Up to 50%AMI
Land provided by BHA CPA not in existence in
2003, thus no funding.
APPENDIX C
NON-TOWN SUPPORTED 40B DEVELOPMENTS (NO TOWN FUNDING)
Date Name Land Size Units Bedrooms % Affordable Funding Additional
2014 Cape View/
Brewster Landing/
Sachemus Trail
9.43 acres 28 homes,
7 affordable
3 units/acre
76
8.1 beds/acre
25%
Up to 80% AMI
----
2014 White Rock Commons 3.64 acres 12 homes,
3 affordable
3 units/acre
36 bedrooms
9.9 beds/acre
25%
Up to 80% AMI
----
ADDITIONAL INFORMATION FOR SHI RENTAL PROPERTIES
Date Name Land Size Units Bedrooms % Affordable Funding Additional
1973 Kings Landing 14.4 acres 108 rental
10 buildings &
community center
7.5 units/acre
210 bedrooms
26- 1 bed, 66- 2,
12-3 & 4-4
14.5 beds/acre
100%
Up to 80% AMI
Mixed funding
sources. LIHTC,
Project based
vouchers
POAH
1990 BHA
Frederick Court
10.26 acres 32 rental
Townhomes
3.1 units/acre
32 bedrooms
3.1 beds/acre
100%
Up to 80% AMI
State 667 Elderly & Disabled
1989 BHA
Huckleberry Lane
6.55 acres 24 rental
12 duplexes
3.7 units/acre
57 bedrooms
(9-3 & 15- 2bed)
8.7 beds/acre
100%
Up to 80% AMI
State 705 Family
2000 Eagle Point, Inc. .53 acre 3 rental
Single home
5.6 units/acre
4 beds
7.5 beds/acre
On SHI ----Latham Center, SHI extended
to 2040.
ADDITIONAL SHI HOME OWNERSHIP
Date Name Land Size Units Bedrooms % Affordable Funding Additional
1990 Belmont Park 26.93 acres
or
(10.35 acres w/ 15+
acres open space)
20 homes
1 unit/ acre or
2 units/ acre
55 beds
2 beds/ acre or
5.13 beds/acre
100% affordable
Up to 80% AMI
Land provided by
Town
Development located on
10.65 acres. 15.81 acres
owned by Brewster &
designated for open space.
1995
Yankee
Drive
12 homes 25% affordable
Up to 80% AMI
----LIP program. 48 Total homes
(McShane)
2003 Yankee Drive
Condos
3 condos Up to 80% AMI ----Original comp permit for 7
total units.
AGE 55+ HOUSING
Date Name Land Size Units Bedrooms % Affordable Funding Additional
2021
Serenity at Brewster
(Former Wingate)
10 acres 132 units
88 Studios &
44 One-bedrooms
132 20% affordable
(Lottery 2022)
27 units,
requested 50%
local preference
----LAU application to DHCD
12/2021.
Phase 1- 41 studios opened
7/ 2021
Phase 2- 91 studios/
1-bedrooms, opening 2022
NURSING HOMES & ASSISTED LIVING
Date Name Land Size Units Bedrooms % Affordable Funding Additional
2015 Maplewood 22.59 acres 132 units
66 independent assist.
66- leveled care
5.8 units/ acre
10% (14 units)
application
----1 building
33 Memory/nursing
33 assisted with help
1994 Pleasant Bay
Nursing & Rehab
12.6 acres 135 beds
10.7 beds/acre
---- ----1 building
2006 Pleasant Bay
Woodlands
Assisted Living
13.0 acres 59 units
4.5 units/acre
10% (internal
process)
----1 building
RFP ISSUED FOR POTENTIAL TOWN SUPPORTED RENTAL HOUSING
Date Name Land Size Units Bedrooms % Affordable Funding Additional
2022
Town-owned parcel at
0 Millstone Road
16+ acres Rental Units Up to 90
bedrooms
100% affordable Land RFP issued by Housing Trust
10/2021. Proposal received
12/2021 and selected by Trust.
Numerical Goal Methodology
State regulations and DHCD guidelines require that the Housing Production Plan include a numeric
goal for annual housing production that would increase the number SHI-eligible units by at least a 0.5
percent of the municipality’s total year-round housing units as determined by the current decennial
census. Achieving this goal in a given year allows municipalities with an approved HPP to request a
one-year certification granting “safe harbor” that allows more flexibility in managing the
comprehensive permit process. The year-round housing count based upon the 2020 Census is not
available as of publication of this HPP, but based upon the 2010 Census Year-Round Housing Count,
Brewster’s annual numeric goal should be at least 24 units. Estimates based on extrapolated 2020 year-
round housing counts yield a slightly higher goal of 25-26 units annually. Ultimately, DHCD will
determine the updated 0.5 percent target based upon the 2020 Census year-round housing count when
it becomes available, but the tables below are meant to provide the Town with an estimate of the
anticipated future “safe harbor” threshold.
METHOD #1: Based on 2010 Year-Round Housing Count (Current Official Target)
2022 2023 2024 2025 2026
Five Year
Overall Goal
Current Total Year-Round Census Units 4,803 4,803 4,803 4,803 4,803
Target SHI Units 24 24 24 24 24 120
Revised SHI Count 292 316 340 364 388 388
Revised SHI 6.1% 6.6% 7.1% 7.6% 8.1% 8.1%
10% Requirement 480 480 480 480 480
Gap 188 164 140 116 92 92
METHOD #2: Based on Estimated 2020 Year-Round Housing Count,
Extrapolated from 2010 Percentage of Vacant Units for Recreational, Seasonal, or Occasional Use
2022 2023 2024 2025 2026
Five Year
Overall Goal
Estimated Total Year-Round Census Units 5,180 5,180 5,180 5,180 5,180
Target SHI Units 26 26 26 26 26 130
Revised SHI Count 294 320 346 372 398 398
Revised SHI 5.7% 6.2% 6.7% 7.2% 7.7% 7.7%
10% Requirement 518 518 518 518 518
Gap 224 198 172 146 121 121
METHOD #3: Based on Estimated 2020 Year-Round Housing Count,
Extrapolated from 2010 Percentage of Total Housing Units for Year-Round Housing
2022 2023 2024 2025 2026
Five Year
Overall Goal
Estimated Total Year-Round Census Units 4,981 4,981 4,981 4,981 4,981
Target SHI Units 25 25 25 25 25 125
Revised SHI Count 293 318 343 368 393 393
Revised SHI 5.9% 6.4% 6.9% 7.4% 7.9% 7.9%
10% Requirement 498 498 498 498 498
Gap 205 180 155 131 106 106
APPENDIX D
APPENDIX E
E1
Community Engagement Summary
In this section, the “project team” refers to the project consultant (Barrett Planning Group LLC), Brewster
Housing Partnership, and Town staff overseeing the development of this Housing Production Plan – Housing
Coordinator Jill Scalise and Assistant Town Administrator Donna Kalinick.
OPPORTUNITIES FOR ENGAGEMENT
The Town of Brewster and Housing Production Plan project team provided multiple opportunities
for participation by local officials and the community at large to guide the development of this plan,
as outlined in the sections below.
Regular Housing Partnership Meetings
The Brewster Housing Partnership met monthly from March 2022 through June 2022 to discuss the
development of this plan with Town staff and the consultant team. Meeting dates and topics were as
follows:
February 10, 2022. During this kickoff meeting, Barrett Planning Group reviewed the project timeline,
community engagement plan, and community survey with the Housing Partnership.
March 10, 2022. Barrett Planning Group discussed the community survey launch, plan for promotion,
and findings of small group interviews. In addition, Barrett Planning Group proposed a strategy
called a “Meeting in a Box” (later updated to a “Community Conversation”) to the Housing
Partnership as a means for creating additional community engagement opportunities.
March 31, 2022. Barrett Planning Group presented preliminary takeaways from community survey
and highlights of the Needs Assessment. The project team also discussed the final protocol for the
Community Conversations, and reviewed plans for the April 28, 2022 community meeting.
April 21, 2022. Barrett Planning Group shared draft slides and plans for the April 28, 2022 community
meeting with the project team.
May 19, 2022. The project team discussed draft goals and strategies for the plan.
June 30, 2022. The project team discussed written comments received on the draft plan and reviewed
proposed edits to the document.
Small Group Interviews
During the month of March 2022, the consultant team conducted small group interviews with a total
of thirty-five individuals familiar with Brewster’s housing needs to get a sense of what has changed
since the last HPP and what needs still remain. Participants included Town staff, members of Town
bodies, representation from housing advocacy groups and social service providers, members of the
business community, realtors, and residents. Common themes from these conversations include:
• There is an insufficient supply of year-round rental units – and some participants made
observations that this is worsening as more renter households are displaced due to the
property owner wanting to sell or convert to short-term rentals.
• The cost of homes has become astronomical (this not unique to Brewster, but a challenge
nonetheless).
• Businesses and some Town departments have difficulty staffing, recruiting, and retaining
employees.
• While there isn’t agreement about precise solutions to these issues, there is consensus that
there is a housing crisis – and the community at large seems to be more aware and willing
to engage in dialogue about this issue.
• The best ways to educate people should focus on: personal stories that highlight the need
of neighbors, those in the community, etc.; the reality of the income levels/limits and
different jobs; and the link between services and housing.
• Environmental concerns raised during this process will primarily focus on water
protection, but tree removal and land disruption are also common concerns.
• Well-received projects tend to have one or more of the following qualities: the project went
through a respectful process where people felt their concerns were heard; the project
involved redevelopment or reuse of existing buildings; the project featured Cape-friendly
design; and the project was for ownership.
• Sites identified for future housing development included the Sea Camps properties
(although there was a lack of clarity/consensus from participants about which of the two
parcels made better sense for housing), Eddy School if the elementary schools consolidate,
shifting of municipal spaces that could allow for reuse of buildings, and focusing on mixed
use development in commercial corridors.
Community Survey
A community survey was available online and in paper form from March 10 through April 8, 2022.
This survey asked questions about the respondent’s own housing needs as well as their perspectives
on the needs of the community. A total of 881 individuals participated in this survey, the results of
which are included in the next section of this Appendix E.
Community Conversations
The project team developed “Community Conversations” kits and made this opportunity publicly
available. The tool included all materials needed for volunteer hosts to hold conversations in smaller
settings with fellow community members. There were at least three such conversations held,
including one at the Council on Aging, one with the Brewster Affordable Housing Trust during their
May 5, 2022 meeting, and one held at a housing location. The feedback during these meetings was
reflective of themes, concerns, and ideas heard throughout this process.
First Community Meeting
The Housing Partnership hosted a virtual community meeting on April 28, 2022 to share key findings
from the Needs Assessment and invite participants to join breakout groups focused on the following
topics: housing needs; development constraints; mapping housing solutions; housing goals and
strategies; and regional context. Common themes that came out of the group discussions included:
• There is a desperate need for increasing the number of affordable rental units in Brewster.
• Renter households are suffering from increasing rents or displacement because property
owners are either raising rents, want to sell, or are shifting to short-term or seasonal rental
model.
• Some participants had strong concerns about the impact of short-term rentals on housing and
wanted the Town to take more action.
• There is a labor shortage due to low wages not meeting increasing rents.
• Some participants noted that Brewster and Harwich used to be communities where people
could have families, working class communities, but this is changing.
• Some strategies raised by participants included offering tax abatements or incentives, placing
a cap on seasonal rentals, focusing on redevelopment of underutilized properties, and
encouraging more ADUs.
• Regional projects have had a lot of value and the Town should continue to look at regional
partnerships.
• Multifamily housing is more likely to be accepted if it looks more like Cape homes. In addition,
top-of-the-shop housing could provide a lot of opportunity for year-round housing for people
who work in Brewster.
The results of the group mapping exercise are provided on the next page.
MassGIS, Esri Canada, Esri, HERE, Garmin, USGS, NGA, EPA, USDA, NPS | Massachusetts Highway Survey Section, MassGIS. Identified sites and
notes generated from community meeting responses, April 28, 2022. Participants also identified some private properties in addition to these general
areas and Town-owned parcels.
MEETING NOTES
1.Foster Square — Add rental housing, mixed-usezoning.
2.Lemon Tree Shops — Add rental housing, mixed-usezoning.
3.Village Business district by Orleans — Mixed-useoptions, easy transportation (so close to bus stop, able towalk to Brewster Farms market). Important for peopleto walk to places they need to go to.
4.Underpass Road — More mixed-use opportunities inthe commercial district by Underpass Rd.
5.Route 6A from Eddy Elementary to the Orleans TownLine — This is part of the area of Town to get someapartments over businesses, both rental and homeownership options. Not in the watershed, propertiesavailable to develop. The Town would need to discusspotential zoning changes.
6.Sea Camps Bay — Buildings that are on the couldprovide housing options.
7.Long Pond Parcel — access to major roads, especiallyif sited fairly close to 137 so utilities would not have tobe brought too far.
8.Proactively watch for vacant buildings that could bereused as housing especially if parking is there already.
9.Spruce Hill Property — There is an existing emptyhouse. Conservation land, so can’t build new buildingbut the existing structure may be able to be repurposed.
10.One of the schools (Eddy or Stony Brook) ifconsolidation takes place –— Already has utilities,parking, space. This site has also been discussed as apotential community center. Could combine acommunity center with housing within walking distance.
11.Land by the police station — Is there additionalspace there? Target areas not in zone 2 and far enoughaway from wetlands.
12.Area by the town owned sand pit — Target areasnot in zone 2 and far enough away from wetlands.
13.Village business districts and commercial areas —Will need to address zoning and should be evaluated ona case by case basis. For example, if you are talking aboutan industrial area depending on nature of business maynot be appropriate to have residential but some would befine.
14.Multi-generational housing on Town-owned land.
15.Area by Snowy Owl and Foster Square — mixeduse zoning – Great because people work there, walk tobusinesses walk to work. There are sidewalks there.Walkable areas and easy transportation.
Figure E1. Mapping Activity - Sites for Development of Affordable Housing
Focus Groups
Between May 10 and May 20, 2022, the consultant team conducted eight focus groups with Town staff,
nonprofit and for-profit developers, representation from regional housing partners, and members
from Town bodies, a total of approximately twenty-five participants. Attendees were asked to review
and provide comments on draft strategies for the HPP before they were integrated into the draft plan.
Presentation to Select Board and Planning Board
On June 6, 2022, the consultant team presented the Needs Assessment, Goals, and Implementation
Strategies to the Select Board and Planning Board for their review. Both boards were invited to provide
comments through the Housing Office on the presentation.
Second Community Meeting on Draft Plan
Held as a virtual meeting of the Housing Partnership, this June 16, 2022 community meeting consisted
of a consultant-led presentation of the draft plan. Attendees (approximately 30 in total) were invited
to ask questions and provide comments during the meeting.
Public Comment Period
Members of the public were encouraged to provide written comments on the draft plan for two weeks
from June 16-June 30, 2022. Three written comments were submitted during this time, in addition to
five written comments received previously following the June 6 presentation to the Select Board and
Planning Board. Town staff and the consultant team discussed the comments and necessary changes
to the plan. These comments are on file with the Brewster Housing Office.
Final Presentation and Plan Adoption
On July 11, 2022, the consultant team presented the revised final plan to the Select Board and Planning
Board for review. Both boards adopted the plan at this joint meeting.
.
COMMUNITY SURVEY SUMMARY – GENERAL RESPONSES
The next section of this Appendix provides a detailed analysis of responses. Open responses to applicable questions are available at the
Brewster Housing Office upon request.
603
156 107
0
100
200
300
400
500
600
700
Yes, I live in
Brewster year-round
Yes, I live in
Brewster seasonally
No
Do you currently live in Brewster, either seasonally
or year-round?
(866 responses)
1 16
68
99 80
196
269
118
16
0
50
100
150
200
250
300
Under
18
18-24 25-34 35-44 45-54 55-64 65-74 75-84 85 or
older
What is your age?
(863 responses)
2 13 8 6 1
786
23 23
0
100
200
300
400
500
600
700
800
900
American Indian
or Alaska Native
Asian or Asian
American
Black or African
American
Hispanic or Latino
(any race)
Native Hawaiian
or other Pacific
Islander
White or
Caucasian
Mixed race/more
than one race
Other (please
specify)
Which of the following racial or ethnic categories best describe you? Select all that apply.
(843 responses -multiple answers allowed)
266
55
9
138
359
16 21
0
50
100
150
200
250
300
350
400
I work full-time for
an employer.
I work part-time for
an employer.
I work seasonally for
an employer.
I am self-
employed/own my
own business.
I am retired.I am unemployed.Other (please
specify).
What describes your current employment status?
(864 responses)
35
0 3
10
52
0
10
20
30
40
50
60
I work in
Brewster.
I own a
business based
in Brewster.
I own rental
property in
Brewster.
I work for a
social service
provider or
other agency
assisting
Brewster
residents.
Other (please
specify)
You indicated that you do not reside in Brewster. What is
your connection to Brewster?
(100 responses; non-residents only)
33
45
29
0
10
20
30
40
50
Yes No Unsure
Are you considering moving to Brewster or do you
want to move to Brewster within the next five years?
(107 responses; non-residents only)
24
114
134
181
153 147
0
50
100
150
200
Less than one year 1-4 years 5-9 years 10-19 years 20-29 years 30+ years
How long have you lived in Brewster?
(753 responses; residents only)
204
273
231
39
0
50
100
150
200
250
300
Precinct 1 Precinct 2 Precinct 3 Unsure
In which voting precinct do you live?
(747 responses; residents only)
81
297
341
35
0
100
200
300
400
Rent Own, and my
mortgage is paid
off
Own, and I am
still paying my
mortgage
Other - please
specify
Do you rent or own your home in Brewster?
(754 responses; residents only)
626
69
5 6 27 4 1 15
0
100
200
300
400
500
600
700
Single family
(detached)
Townhouse or
condo
Duplex/2-unit
building
3-4 unit building 5+ unit building Accesory Dwelling
Unit (ADU)
Group home Other - please
specify
What type of home do you live in?
(753 responses; residents only)
48 64
150
492
0
100
200
300
400
500
600
Very likely Moderately
likely
Slightly likely Not at all likely
How likely are you to move out of Brewster in the next
five years?
(754 responses; residents only)
463
187
65
30
0
100
200
300
400
500
Very important Moderately
important
Slightly
important
Not at all
important
How important is it for you to stay in Brewster as
you age?
(745 resonses; residents only)
58
19
7 12
2
10
1 7
16
4 6
31
0
10
20
30
40
50
60
70
Housing/living
costs have
become too
high
Home no
longer meets
my or my
household's
needs
Prefer or need
accessible
housing
Concerns
about
development
changing the
town's
character
Concerns
about sea level
rise
Employment
opportunities
School choice Seeking
additional
community
services/local
amenities
Would like to
live in a
different
climate
(weather)
Children
finished school
None of the
above
Other - please
specify
You’ve indicated that it is very likely or moderately likely that you will move out of Brewster in the next five years. Which
of the following factors do you believe most influence your likelihood of moving out of Brewster? Select all that apply.
(110 res
227
129 145
227
95
132 134 145
84
0
50
100
150
200
250
Affordability of
housing costs
Accessibility
improvements to
home (e.g.,
installation of
ramps, grab bars,
first floor living)
More transit
options (e.g., buses,
ride shares/taxis)
Expanded
community
services (e.g.,
health and
wellness
services/programs)
Availability of
"lifestyle housing"
(i.e., designed for
active older adults,
including single-
family and/or
multi-family with
social or
recreational
amenities such as
clubhouses)
Availability of
"service-enriched
housing" (i.e.,
offers a set of
services intended
to meet residents'
evolving needs) or
expanded
homebased
services
Availability of
housing in
walkable
neighborhood
None of the above Other - please
specify
You've indicated that it is very important or moderately important to stay in Brewster as you age. What factors
need to change/improve to enable you to stay in the community as you age? Select all that apply.
(644 responses -multiple answers allowed; res
4
23
36
24
4
0
0
10
20
30
40
Studio 1 bedroom 2 bedrooms 3 bedrooms 4 bedrooms More than 4
bedrooms
How many bedrooms would your household need to live
comfortably in a rental home in Brewster?
(91 responses; non-residents or current non-homeowner residents only
based on previous response)
59
48
33
0
10
20
30
40
50
60
70
Yes No Unsure
Are you currently looking or do you
anticipate looking for rental housing in
Brewster within the next five years?
(140 responses; non-residents or current non-
homeowner residents only)
8
31
65
33
0
10
20
30
40
50
60
70
Very likely Slighly likely Not at all likely Unsure
How likely is it that you will buy a home in Brewster in the next five years?
(137 responses; non-residents or current non-homeowner residents only)
15
96
22
13 5 8 13 12 4
0
25
50
75
100
125
I do not intend to
buy a home in the
next 10 years.
Lack of available
housing in my
price range
(location, size,
quality, etc.)
I do not qualify to
buy a home.
Extend and/or
proximity of
employment
opportunities
School options Type/exten of
local amenities
(parks,
recreation,
libraries, houses
of worship)
Proximity to
family and/or
friends
None of the
above
Other - please
specify
You've indicated that buying a home in Brewster within the next five years is slightly likely, not likely, or that you are
unsure. Which of the following factors most influence this decision? Select all that apply.
(127 responses -multiple answes allowed;
38
765
4 8
0
100
200
300
400
500
600
700
800
900
Yes No Unsure Other - please
specify
Do you receive any income-based housing assistance
or live in a housing unit with income restrictions?
(815 responses; current residents or non-residents interested
in moving to Brewster only)
93 83
614
23
0
100
200
300
400
500
600
700
Yes, and I/we have
not yet financially
recovered.
Yes, but I/we have
since financially
recovered.
No Unsure
Did you or anyone in your household experience a significant
loss of wage or salary income due to the COVID-19 pandemic?
(813 responses; current residents or non-residents interested in
moving to Brewster only)
44 37 81
14
633
0
100
200
300
400
500
600
700
Every month Most months Some months One month Never; we
have not had
problems
paying for
housing costs
How often in the last 12 months did you find it hard to
pay your rent, mortgage, or other housing costs?
(809 responses; current residents or non-residents interested in
moving to Brewster only)
406
280
120
0
50
100
150
200
250
300
350
400
450
Yes No Unsure
According to the U.S. Department of Housing and Urban
Development (HUD), the 2022 “fair market rents” for
Brewster’s metropolitan statistical area (MSA) are as follows:
1br: $1,428; 2br: $1,879; 3br: $2,323; 4br: $2,548. If you
needed to seek rental housi
282
431
97
0
100
200
300
400
500
Yes No Unsure
The median sales price for a single-family home in
Brewster was $655,000 in 2021. If you were to buy
today, would you be able to afford to purchase a home in
Brewster at this price?
(810 responses; current residents or non-residents interested in
moving t
163
649
0
100
200
300
400
500
600
700
Yes No
Do you have children under 18 who reside in your
household for more than 3 months/year?
(812 responses; current residents or non-residents interested in
moving to Brewster only)
356
165
280
7 1 2
0
50
100
150
200
250
300
350
400
0 1 2 3 4 5 or more
How many members of your household are 65 or older,
including yourself?
(811 responses; current residents or non-residents interested
in moving to Brewster only)
108
681
11 15
0
100
200
300
400
500
600
700
800
Yes No Unsure Other - please
specify
Does anyone in your household have a disability (any
physical or mental impairment that substantially limits
one or more major life activity)?
(815 responses; current residents or non-residents interested
in moving to Brewster only)
36
86
8 4
0
20
40
60
80
100
Yes (please feel
free to identify
your support
organizations or
agencies)
No Unsure Other - please
specify
Do you or any member(s) of your household receive
support services through an outside organization or
agency to assist with home or life activities?
(134 responses; households with someone with disability only)
19
93
14
7
0
20
40
60
80
100
Yes No Unsure Other - please
specify
Do you or any member(s) of your household require
assistive services that you/they are unable to afford or
access for some other reason?
(133 responses; households with someone with disability only)
644
39 23 41 2
59
0
100
200
300
400
500
600
700
No, I have not
considered having a
roommate or live-in aide
or do not need one.
Yes, I have considered
having a roommate but
do not currently have
one.
Yes, I have considered
having a live-in aide but
do not currently have
one.
Yes, I currently have a
roommate.
Yes, I currently have a
live-in aide.
Unsure/Other (please
specify)
Do you currently have or have you considered having a roommate or live-in aide?
(808 responses; current residents or non-residents interested in moving to Brewster only)
443
294
519
638
314 338
234
169
97
215
97
38
0
100
200
300
400
500
600
700
Brewster is welcoming to people all of
races, ethnicities, and cultural
backgrounds.
Brewster is welcoming to people of all
socioeconomic backgrounds.
Brewster is welcoming to families
with children.
Brewster is welcoming to older
adults.
Please indicate your thoughts on the following statements.
(Between 845 and 854 responses -varies per statement)
Agree Unsure/Neutral Disagree
515
62
201
240
170
202
104 88
239
296
69
25
0
100
200
300
400
500
600
Helping people
stay in year-
round housing
that is affordable
to them
Creating housing
with convenient
access to
amenities
Creating housing
with a mix of
price ranges
Creating more
housing
options/choices
Preservation of
existing housing
Ensuring that new
housing is
sustainably built
(environmentally
responsible,
energy efficient,
and resource-
efficient design
and materials)
Creating mixed-
use development
with retail on the
ground level and
residential space
on upper floors
Making additional
funds available to
improve public
housing
Attracting
families with
children
Helping people
stay in the
community as
they age
Other - please
specify
None of the
above
Which of the following housing initiatives are most important to you?
(856 responses -allowed to check up to three answers)
28 25 15 64 17 12
103 83 107
239
123 86
581 524
604
278 266
603
142
212
120
262
437
144
0
100
200
300
400
500
600
700
Affordable rental units
for individuals or smaller
households
Affordable rental units
for larger households
Affordable home
ownership opportunities
Senior housing Housing for people with
disabilities
“Starter” homes
Do you think Brewster has too much, not enough, or just the right amount of the following specialized
categories of housing?
(Between 843 and 854 responses -varies per category of housing)
Too much Right amount Not enough Unsure/No opinion
86 52
163
51 78 23
458
179
299
142
311
98
171
312
186
447
176
400
122
286
183 197
261 310
0
100
200
300
400
500
600
700
Single family homes
(detached)
Duplexes Condominiums Apartments Assisted living facilities Accessory dwelling units
(smaller dwelling unit
within or adjacent to a
single-family house)
Do you think Brewster has too much, not enough, or just the right amount of the following types of housing?
(Between 826 and 837 responses -varies per housing type)
Too much Right amount Not enough Unsure/No opinion
COMMUNITY SURVEY ANALYSIS
The Community Survey for the Brewster Housing Production Plan launched on March 10 and closed
on April 8, 2022. The survey was available online as well as in paper-copy at Town Hall, and it was
advertised on the Town’s website with the assistance of the Housing Office. The survey received 881
responses in total.
The purpose of the survey was to engage members of the Brewster community through an accessible
outreach tool and to learn about the housing needs and challenges that exist in Town. The survey
included questions about demographics, income, and affiliation with the Town of Brewster to help
identify the priorities and interests of different groups. This survey does not constitute a decision-
making or voting tool, but its results informed the needs, goals, and recommendations discussed and
considered throughout the Housing Production Plan process.
Who took the survey?
Of 866 respondents who indicated whether they live in Brewster, the majority (69.6 percent) were
year-round residents, 18.0 percent were seasonal residents, and 12.4 percent were non-residents.
The best-represented age group was 65 to 74 years old, and 53.9 percent of respondents were between
the ages of 55 and 74. About equal numbers of respondents were under 25 or over 85, and these groups
made up less than 4.0 percent of survey-takers. Figure E2 shows the age distribution of respondents
compared with the US Census Bureau’s American Community Survey (ACS) Five-Year Estimates for
2016 to 2020.
0.
1
%
1.
9
%
7.
9
%
11
.
5
%
9.
3
%
22
.
7
%
31
.
2
%
13
.
7
%
1.
9
%
13
.
8
%
6.
4
%
8.
5
%
5.
5
%
14
.
5
%
19
.
4
%
18
.
0
%
8.
9
%
5.
0
%
0%
5%
10%
15%
20%
25%
30%
35%
Under 18 18 - 24 25 - 34 35 - 44 45 - 54 55 - 64 65 - 74 75 - 84 85 or older
Figure E2. Age Composition of Survey Respondents and Town Population
Source: ACS 5-Year Estimates. Table B01001
Survey Respondents ACS Estimates
Figure E3 shows the duration that resident respondents have lived in Brewster as a percent of each
group of residents. Combined, the largest proportion of respondents (24.0%) have lived in Brewster
for 10-19 years, followed by 20.3% for 20-29 years, 19.4% for more than 30 years, 17.8% for 5-9 years,
15.1% for 1-4 years, and 3.2% for less than a year.
Only one in five respondents indicated that they had one or more children in their home. More than
half of respondents (56.1 percent) have at least one older adult (over 65) in their household. Forty-one
respondents had roommates, and two had live-in aides. Between 108 and 134 respondents have
members of their household with a disability (this range is because some respondents were unsure or
selected “other” and specified health conditions). Of 134 respondents asked whether a member of
their household receives supportive services due to disability, 36 (26.9 percent) said yes, and 12 were
unsure or selected other. Nineteen respondents indicated their household had a need for supportive
services that they were unable to afford or access (for other reasons).
Asked about their current employment status, most respondents indicated that they work, 41.6
percent are retired, and 1.9 percent are unemployed. Figure E4 illustrates respondents’ employment
by residence status, which shows that year-round and seasonal resident respondents had similar
employment statistics, but many fewer non-resident respondents were retired (45.0 percent work in
Brewster or serve Brewster residents in a professional capacity).
3.
2
%
16
.
4
%
17
.
9
%
22
.
7
%
20
.
4
%
19
.
4
%
3.
2
%
10
.
3
%
17
.
4
%
29
.
0
%
20
.
0
%
20
.
0
%
0%
5%
10%
15%
20%
25%
30%
35%
<1 year 1-4 years 5-9 years 10-19 years 20-29 years >30 years
Figure E3. Duration of Residence in Brewster by Year-Round or Seasonal Status
Year-Round Seasonal
The survey captured responses from a population with a racial or ethnic composition that aligned
closely with the 2020 Census. Survey takers were able to select as many or as few racial or ethnic
categories as they wished, and the list of options matched Census categories. 1 The racial/ethnic
breakdown of survey respondents was was within 1 percent of the Town’s population statistics for all
categories except Hispanic or Latino, White or Caucasian, and Other. Table E1 compares the racial or
1 Because survey takers were able to select multiple options, there were a total of 862 selections by 843 respondents. This is the
reason that the “Survey Percent” column adds up to more than 100 percent. Because Hispanic or Latino origin is considered an
ethnicity rather than race, the U.S. Census Bureau breaks down race into Hispanic or Latino status (note “any race” designation
of Hispanic or Latino population), so the census totals equal 100 percent.
30.7%
6.0%
0.8%
15.8%
43.2%
1.3%
2.2%
20.5%
6.4%
0.6%
19.2%
48.1%
3.2%
1.9%
46.7%
7.6%
2.9%
12.4%
22.9%
2.9%
4.8%
0%10%20%30%40%50%60%
I work full-time for an employer.
I work part-time for an employer.
I work seasonally for an employer.
I am self-employed/own my own business.
I am retired.
I am unemployed.
Other (please specify)
Figure E4. Respondents' Employment Status by Residence Status
Year-round Seasonal Non-resident
ethnic composition of the survey respondents with census data. Sixteen of the respondents who
selected “other” expressed their unwillingness to answer or asked about the relevance of racial or
ethnic demographics to the Housing Production Plan’s Community Survey. The purpose of the
question was to help the team assess the effectiveness of outreach in engaging a cross-section of the
members of the Brewster community and to evaluate if there is or could be a relationship between
race or ethnicity and housing needs or perceptions of housing needs in Brewster.
Table E1. Demographic Comparison: Survey Respondents and 2020 US Decennial Census
Race or Ethnicity* Survey 2020 Census Comparison
Number Percent Number Percent Survey % - Census %
American Indian or Alaska Native 2 0.2% 17 0.2% 0.1%
Asian or Asian American 13 1.5% 104 1.0% 0.5%
Black or African American 8 0.9% 161 1.6% -0.6%
Hispanic or Latino (any race) 6 0.7% 306 3.0% -2.3%
Native Hawaiian or Pacific Islander 1 0.1% 7 0.1% 0.1%
White or Caucasian 786 93.2% 9,363 90.7% 2.5%
Mixed race/more than one race 23 2.7% 314 3.0% -0.3%
Other (please specify) 23 2.7% 46 0.5% 2.3%
Total 843 102.3% 10,318 100.0%
Source: 2020 US Decennial Census. Survey total does not equal 100 percent because participants were able to select
more than one option.
What did we hear about housing in Brewster today?
Survey takers were asked whether they rent or own their homes and about their mortgage status.
More than four out of five respondents indicated that they own their homes, and Figure E4 illustrates
the relatively even split between homeowners who did and did not have remaining mortgage
obligations. This question provided a useful point of comparison versus ACS data and sought to
clarify whether mentions of high housing costs are the result of mortgage payments, property taxes
and utility costs, or a combination of these. According to ACS data, 38.1 percent of housing units in
Brewster do not have a mortgage, and 39.4 percent of respondents paid off their mortgages, so
responses were well-aligned with official estimates. The proportion of year-round renters among
respondents (10.2 percent) was also close to estimates of the Town’s housing stock occupied by year-
round renter households (8.2 percent).
Figure E5 shows the tenure of year-round and seasonal Brewster residents, and it provides both the
number of responses (left) and proportions of each group of residents represented in each tenure
category (right). This figure shows that the proportion of seasonal residents without a mortgage on
their homes in Brewster is more than 20 percent higher than that of year-round residents. Residents
who rent year-round in Brewster responded at a considerably higher rate than seasonal resident
renters.
Table E2 shows the housing types of year-round and seasonal residents, and it shows that while most
respondents (regardless of residence status) live in single-family homes, townhouses and condos are
also particularly popular among seasonal residents.
Table E2. Respondents’ Housing Type by Residence Status
Housing Type Year-round Seasonal
Number Percent Number Percent
Single family (detached) 507 84.9% 119 76.3%
Townhouse or condo 35 5.9% 34 21.8%
Duplex/2-unit building 5 0.8% 0 0.0%
3–4-unit building 6 1.0% 0 0.0%
5+ unit building 26 4.4% 1 0.6%
Accessory dwelling unit (ADU) 4 0.7% 0 0.0%
Group home 1 0.2% 0 0.0%
Other - please specify 13 2.2% 2 1.3%
Total 597 156
12.8%
34.8%
47.2%
5.2%2.6%
57.1%
37.7%
2.6%
0%
10%
20%
30%
40%
50%
60%
Rent Own, and my mortgage is
paid off
Own, and I am still paying
my mortgage
Other
Figure E5. Resident Tenure by Residence Status
Year-round Seasonal
Thirty-eight respondents were residents of income-restricted housing units: 32 were year-round
Brewster residents, and 6 were non-residents. Three respondents wrote-in answers to this question
indicating their unmet needs for affordable units. More than 1 in 5 respondents (22.6 percent)
indicated that their households suffered losses in income related to the COVID-19 pandemic, and
about half of these respondents (10.2 percent) report that they have not yet financially recovered.
Figure E6 shows how often respondents reported they had difficulties paying their housing costs in
the past year. Among respondents, seasonal residents had the least difficulty paying housing costs
(91.7 percent report “never”), while about a quarter of year-round residents and nearly half of non-
residents had trouble one or more months.
Figure E7 also shows how often respondents had difficulties paying their housing expenses, and it
groups respondents by tenure type. Less than 40 percent of renter respondents indicated never having
trouble paying their housing expenses, whereas 85.3 percent of homeowners reported no difficulty.
5.9%4.4%10.5%
1.7%
77.5%
1.9%1.3%5.1%0.0%
91.7%
9.7%14.5%17.7%
6.5%
51.6%
0%
20%
40%
60%
80%
100%
Every month Most months Some months One month Never
Figure E6. Respondents’ Frequency of Difficulty Paying Housing Costs in the Past
Year by Residence Status
Year-round Seasonal Non-resident
18
.
4
%
13
.
2
%
28
.
9
%
1.
3
%
38
.
2
%
1.
4
%
1.
0
%
3.
1
%
0.
7
%
93
.
9
%
4.
1
%
2.
6
%
10
.
0
%
1.
8
%
81
.
5
%
15
.
2
%
18
.
2
%
15
.
2
%
3.
0
%
48
.
5
%
0%
20%
40%
60%
80%
100%
Every month Most months Some months One month Never
Figure E7. Respondents’ Frequency of Difficulty Paying Housing Costs in the Past
Year by Tenure
Rent Own, and my mortgage is paid off Own, and I am still paying my mortgage Other
The survey presented respondents with the median sales price for single-family homes in Brewster in
2021 as well as 2022 “fair market rents” (from the U.S. Department of Housing and Urban
Development) for apartments with 1-4 bedrooms in Brewster’s area. We asked survey takers whether
they would be able to afford to buy or rent at these prices today. Figure E8 shows the combined results
of these questions for year-round, seasonal, and non- residents. Less than one third of year-round
resident respondents said they could afford to buy today, and less than half said they could rent. More
seasonal resident respondents reported being able to afford current prices, and considerably fewer
non-resident respondents reported that they would be able to afford to move to Brewster today.
What did we hear about the future?
More than 85 percent of resident survey takers reported that they are unlikely (either “not at all likely”
or “slightly likely”) to move out of Brewster in the next five years, and more than 87 percent reported
that it was very or moderately important to stay in Brewster as they age. If respondents indicated that
they were somewhat likely to move, the survey asked about factors that will influence the decision.
Of 110 respondents who received the question, 58 respondents (52.7 percent) cited high
housing/living expenses. About a quarter of respondents wrote in their own answers, which was the
32.2%
47.6%
54.8%
37.8%
13.0%
14.6%
53.8%
66.9%
36.5%
17.5%
9.6%
15.6%
11.5%
35.5%
80.3%
48.4%
8.2%
16.1%
0%20%40%60%80%100%
Yes, I could buy
Yes, I could rent
No, I could not buy
No, I could not rent
Unsure whether I could buy
Unsure whether I could rent
Figure E8. Respondents' Ability to Buy or Rent Homes in Brewster at Current
Prices by Residence Status
Year-round Seasonal Non-resident
second most common selection. These responses varied considerably, but several suggested that
changes in their housing or financial circumstances will render them unable to stay in Brewster.
Similarly, for those who indicated it was important to them to age in Brewster (of whom there were
644), affordability of housing costs and expanded access to community services were each selected by
35.2 percent of respondents as factors that would need to change or improve to enable respondents to
stay in the community. Nearly one quarter of respondents indicated that no changes or improvements
would be necessary, but there was a statistically significant difference between responses from year-
round and seasonal residents, with seasonal resident respondents citing no barriers to aging in
Brewster at a rate more than 10 percent higher than that of year-round residents.
Ninety-two respondents indicated that they will or may be looking for rental housing in Brewster in
the next five years: 36 indicated they would look for a 2-bedroom rental home, 24 for 3 bedrooms, 23
for 1 bedroom, and 4 each said they would need 4 bedrooms or studio units. Renter and non-resident
respondents were also asked whether they would buy a home in Brewster in the next five years, and
about half said that was not at all likely. Among non-resident respondents, 42.1 percent indicated that
they are not considering moving to Brewster within the next five years (“yes” and “unsure” were
separated by 3.7 percent). Of 127 respondents who indicated they were unlikely to buy a home in
Brewster soon, 96 (75.6 percent) cited lack of available housing in their price range.
FUTURE PRIORITIES
We asked respondents about housing initiatives that are important to them, and we asked them to
select their top three priorities. The most popular selection (by a margin of 25 percent) was helping
people stay in year-round housing that is affordable to them with support from 60.2 percent of
respondents overall. This option was the top choice among year-round and non-residents, but the top
choice among seasonal residents was helping people stay in the community as they age, which was
second most popular overall. Figure E9 illustrates the percentages of respondents who selected each
answer among year-round, seasonal, and non- residents as well as the combined total popularity of
each response.
62.4%
31.8%
26.2%
30.3%
23.9%
22.4%
20.6%
13.4%
10.6%
9.5%
6.5%
2.0%
41.0%
45.5%
21.2%
23.7%
26.3%
25.6%
25.0%
6.4%
6.4%
5.1%
12.2%
4.5%
69.2%
30.8%
45.8%
17.8%
15.9%
24.3%
6.5%
12.1%
13.1%
3.7%
3.7%
4.7%
60.2%
34.6%
28.0%
27.9%
23.6%
23.5%
19.9%
12.1%
10.3%
8.1%
7.2%
2.9%
0%20%40%60%80%100%
Helping people stay in year-round housing that is
affordable to them
Helping people stay in the community as they age
Creating more housing options/choices
Attracting families with children
Ensuring that new housing is sustainably built (e.g.,
environmentally responsible, energy efficient, and
resource-efficient design and materials)
Creating housing with a mix of price ranges
Preservation of existing housing
Creating mixed-use development with retail on the
ground level and residential space on upper floors
Making additional funds available to improve public
housing
Other - please specify
Creating housing with convenient access to amenities
None of the above
Figure E9. Top Housing Initiatives by Residence Status and Overall Popularity
Year-round Seasonal Non-resident Overall
The survey asked respondents to respond to a series of statements about whether Brewster is
welcoming to different populations: people of all races, ethnicities, and cultural backgrounds; people
of all socioeconomic backgrounds; families with children; and older adults. Figure E10 shows the
percentage of respondents who gave each answer. More than three-quarters of respondents agreed
that Brewster is welcoming to older adults, but only about a third (34.7 percent) agreed that Brewster
is welcome to people of all socioeconomic backgrounds. The largest difference in agreement between
year-round, seasonal, and non- residents showed that while 72.4 percent of seasonal residents agree
that Brewster is welcoming to families with children, 59.9 percent of year-round residents agreed, and
only 50.5 percent of non-residents agreed.
Respondents indicated how they felt about the quantity of homes in Brewster for households looking
for homes that accommodate specialized housing needs. Figure E11 shows that at least 60 percent of
respondents indicated that there were not enough affordable homes, regardless of whether they serve
large or small households. There was even stronger response (71.4 percent) indicating that the number
of affordable homeownership opportunities and “starter” homes in Brewster was not enough. There
was some variation by residence status, but in general, year-round and non-resident populations
indicated that there were not enough of each of the specialized housing type at rates between 9
percentage points (senior housing) and 33 percentage points (large affordable units) higher than those
of seasonal residents.
51.9%
34.7%
61.1%
75.5%
36.8%39.9%
27.5%
20.0%
11.4%
25.4%
11.4%
4.5%
0%
20%
40%
60%
80%
100%
Brewster is welcoming to
people all of races,
ethnicities, and cultural
backgrounds.
Brewster is welcoming to
people of all
socioeconomic
backgrounds.
Brewster is welcoming to
families with children.
Brewster is welcoming to
older adults.
Figure E10. Is Brewster Welcoming to Different Groups of People?
Agree Unsure/Neutral Disagree
Survey respondents indicated how they felt about the number of housing units in Brewster of several
housing types. Figure E11 shows that more than half of survey respondents think Brewster has the
right amount of single family detached homes and not enough apartments. If respondents had
opinions on the number of accessory dwelling units (ADUs), they tended to respond that there were
not enough (only 14.6 percent said there were too many or the right amount). There was greater
variability in answers about duplexes, condos, and assisted living facilities.
There was also considerable variation in the opinions of survey respondents about the composition of
Brewster’s housing mix between year-round, seasonal, and non- resident respondents. Using the same
data as is presented in Figure E12, Figures E13-E18 shows the responses of year-round, seasonal, and
non-residents for each housing type.
3.
3
%
3.
0
%
1.
8
%
7.
6
%
2.
0
%
1.
4
%
12
.
1
%
9.
8
%
12
.
6
%
28
.
4
%
14
.
6
%
10
.
2
%
68
.
0
%
62
.
1
%
71
.
4
%
33
.
0
%
31
.
6
%
71
.
4
%
16
.
6
%
25
.
1
%
14
.
2
%
31
.
1
%
51
.
8
%
17
.
0
%
0%
20%
40%
60%
80%
100%
Affordable rental
units for
individuals or
smaller
households
Affordable rental
units for larger
households
Affordable home
ownership
opportunities
Senior housing Housing for
people with
disabilities
“Starter” homes
Figure E11. Sufficiency of Specialized Housing Options
Too much Right amount Not enough Unsure/No opinion
10
.
3
%
6.
3
%
19
.
6
%
6.
1
%
9.
4
%
2.
8
%
54
.
7
%
21
.
6
%
36
.
0
%
17
.
0
%
37
.
7
%
11
.
8
%
20
.
4
%
37
.
6
%
22
.
4
%
53
.
4
%
21
.
3
%
48
.
1
%
14
.
6
%
34
.
5
%
22
.
0
%
23
.
5
%
31
.
6
%
37
.
3
%
0%
20%
40%
60%
80%
100%
Single family
homes (detached)
Duplexes Condominiums Apartments Assisted living
facilities
Accessory
dwelling units
Figure E12. Opinion on Sufficiency of Housing Mix
Too much Right amount Not enough Unsure/No opinion
11
.
8
%
53
.
9
%
21
.
3
%
13
.
0
%
5.
4
%
67
.
6
%
10
.
8
%
16
.
2
%
8.
9
%
40
.
6
%
28
.
7
%
21
.
8
%
0%
20%
40%
60%
80%
100%
Too much Right
amount
Not
enough
Unsure/No
opinion
Figure E13. Opinion on Sufficiency of
Single Family Homes According to
Residency Status
Year-round Seasonal Non-resident
5.
7
%
21
.
5
%
42
.
2
%
30
.
6
%
10
.
3
%
25
.
3
%
17
.
8
%
46
.
6
%
4.
0
%
16
.
0
%
41
.
0
%
39
.
0
%
0%
20%
40%
60%
80%
100%
Too much Right
amount
Not
enough
Unsure/No
opinion
Figure E14. Opinion on Sufficiency of
Duplexes According to Residency
Status
Year-round Seasonal Non-resident
19
.
0
%
38
.
6
%
22
.
6
%
19
.
7
%
26
.
0
%
33
.
6
%
13
.
7
%
26
.
7
%
14
.
0
%
24
.
0
%
34
.
0
%
28
.
0
%
0%
20%
40%
60%
80%
100%
Too much Right
amount
Not
enough
Unsure/No
opinion
Figure E15. Opinion on Sufficiency of
Condominiums According to Residency
Status
Year-round Seasonal Non-resident
5.
3
%
16
.
0
%
58
.
7
%
20
.
0
%
8.
8
%
25
.
9
%
29
.
3
%
36
.
1
%
6.
9
%
8.
8
%
58
.
8
%
25
.
5
%
0%
20%
40%
60%
80%
100%
Too much Right
amount
Not
enough
Unsure/No
opinion
Figure E16. Opinion on Sufficiency of
Apartments According to Residency
Status
Year-round Seasonal Non-resident
2.
7
%
12
.
0
%
55
.
0
%
30
.
3
%
2.
8
%
13
.
9
%
24
.
3
%
59
.
0
%
3.
0
%
7.
0
%
43
.
0
%
47
.
0
%
0%
20%
40%
60%
80%
100%
Too much Right
amount
Not
enough
Unsure/No
opinion
Figure E18. Opinion on Sufficiency of
Accessory Dwelling Units (ADUs)
According to Residency Status
Year-round Seasonal Non-resident
10
.
2
%
40
.
7
%
22
.
1
%
27
.
0
%
6.
9
%
32
.
4
%
19
.
3
%
41
.
4
%
8.
9
%
27
.
7
%
19
.
8
%
43
.
6
%
0%
20%
40%
60%
80%
100%
Too much Right
amount
Not
enough
Unsure/No
opinion
Figure E17. Opinion on Sufficiency of
Assisted Living Facilities According to
Residency Status
Year-round Seasonal Non-resident
Figure E19 shows the most common words respondents used to describe the most significant barriers
to affordable housing in Brewster. Prices and costs were the most popular responses, but other
common themes included land availability, housing availability, the Town zoning bylaw and building
restrictions, seasonal rentals, and low wages. A full record of open responses can be viewed upon
request at the Brewster Housing Office.
Figure E19. Word Cloud of Barriers to Affordable Housing in Brewster
Glossary of H ousing T erms
Affirmative Fair Housing Marketing Plan (AFHMP). A plan that meets the fair housing and non-
discrimination requirements of the Department of Housing and Community Development
(DHCD) for marketing affordable housing units. The plan typically provides for a lottery and
outreach to populations protected under the federal Fair Housing Act of 1968, as amended.
The plan must be designed to prevent housing discrimination on the basis of race, creed, color,
national origin, sex, age, disability, familial status, sexual orientation, gender identity, or any
other legally protected class under state or federal law.
Affordable Housing. As used in this report, "affordable housing" is synonymous with low- or
moderate-income housing, i.e., housing available to households with income that does not
exceed 80 percent of area median income and at a cost that does not exceed 30 percent of their
monthly gross income.
Affordable Housing Restriction. A contract, mortgage agreement, deed restriction or other legal
instrument, acceptable in form and substance to the Town, that effectively restricts occupancy
of an affordable housing unit to a qualified purchaser or renter, and which provides for
administration, monitoring, and enforcement of the restriction during the term of
affordability. An affordable housing restriction runs with the land in perpetuity or for the
maximum period allowed by law. It should be entered into and made enforceable under the
provisions of G.L. c. 184, §§ 31-33 or other equivalent state law.
Affordable Housing Trust. The mechanism used to account for and report revenues and expenditures
for affordable housing, including but not limited to Community Preservation Act (CPA)
receipts and other affordable housing funding sources.
Area Median Income (AMI). The median family income, adjusted for household size, within a given
metropolitan or non-metropolitan area, updated annually by HUD and used to determine
eligibility for most housing assistance programs.
Average-Income Household. Loosely defined term for households with incomes over the maximum
for affordable housing but typically outpriced by housing costs in affluent suburbs. An income
between 81 and 120 percent of AMI generally encompasses average-income households.
Chapter 40A. G.L. c. 40A, the state Zoning Act. The current version of the Zoning Act was adopted in
1975 (1975 Mass. Acts 808).
APPENDIX F
Chapter 40B. G.L. c. 40B, § 20-23 (1969 Mass. Acts 774), the state law administered locally by the Board
of Appeals to create affordable housing. It provides eligible developers with a unified
permitting process that subsumes all permits normally issued by multiple town boards.
Chapter 40B establishes a basic presumption at least 10 percent of the housing in each city and
town should be affordable to low- or moderate-income households. In communities below the
10 percent statutory minimum, affordable housing developers aggrieved by a decision of the
Board of Appeals can appeal to the state Housing Appeals Committee, which in turn has
authority to uphold or reverse the Board's decision.
Chapter 44B. G.L. c. 44B (2000 Mass. Acts 267), the Community Preservation Act, allows communities
to establish a Community Preservation Fund for open space, historic preservation, and
community housing by imposing a surcharge of up to 3 percent on local property tax bills.
The state provides matching funds (or a partial match) from the Community Preservation
Trust Fund, generated from Registry of Deeds fees.
Community Housing. As defined under Chapter 44B, “community housing” includes housing
affordable and available to (a) households with incomes at or below 80 percent AMI and (b)
between 81 percent and 100 percent AMI.
Community Land Trust. Community land trusts are nonprofit, community-based organizations
designed to ensure community stewardship of land. They are used primarily to ensure long-
term housing affordability. To do so, the trust acquires land and maintains ownership of it
permanently. With prospective homeowners, it enters into a long-term, renewable lease
instead of a traditional sale. When the homeowner sells, the family earns only a portion of the
increased property value. The remainder is kept by the trust, preserving the affordability for
future low- to moderate-income families.
Community Preservation Act. Chapter 44B. G.L. c. 44B (2000 Mass. Acts 267) allows communities to
establish a Community Preservation Fund for open space, historic preservation, and
community housing by imposing a surcharge of up to 3 percent on local property tax bills.
The state provides matching funds (or a partial match) from the Community Preservation
Trust Fund, generated from Registry of Deeds fees.
Comprehensive Permit. The unified permit authorized by Chapter 40B for affordable housing
development.
Department of Housing and Community Development (DHCD). The state's lead housing agency,
originally known as the Department of Community Affairs (DCA). DHCD oversees state-
funded public housing and administers rental assistance programs, the state allocation of
CDBG and HOME funds, various state-funded affordable housing development programs,
and the Community Services Block Grant (CSBG) Program. DHCD also oversees the
administration of Chapter 40B.
Extremely Low-Income Household. A household income at or below 30 percent of AMI. (In some
housing programs, a household with income at or below 30 percent of AMI is called very low
income.)
Fair Housing Act (Federal). Established under Title VII of the 1968 Civil Rights Act, the federal Fair
Housing Act prohibits discrimination in the sale, rental, and financing of dwellings, and in
other housing-related transactions, based on race, color, national origin, religion, sex, familial
status (including children under the age of 18 living with parents or legal custodians, pregnant
women, and people securing custody of children under the age of 18), sexual orientation,
gender identity, and disability.
Fair Housing Law, Massachusetts. G.L. c. 151B (1946), the state Fair Housing Act prohibits housing
discrimination on the basis of race, color religious creed, national origin, sex, sexual
orientation, age, children, ancestry, marital status, veteran history, public assistance
recipiency, or physical or mental disability.
Fair Market Rent (FMR). A mechanism used by HUD to control costs in the Section 8 rental assistance
program. HUD sets FMRs annually for metropolitan and non-metropolitan housing market
areas. The FMR is the 40th percentile of gross rents for typical, non-substandard rental units
occupied by recent movers in a local housing market. (See 24 CFR 888.)
Family. Under the Federal Fair Housing Act (FFHA), family includes any of the following:
(1)A single person, who may be an elderly person, displaced person, disabled person, near-
elderly person, or any other single person; or
(2)A group of persons residing together, and such group includes, but is not limited to:
(a)A family with or without children (a child who is temporarily away from the home
because of placement in foster care is considered a member of the family);
(b)An elderly family;
(c)A near-elderly family;
(d)A disabled family;
(e)A displaced family; and
(f)The remaining members of a tenant family.
Gross Rent. Gross rent is the sum of the rent paid to the owner (“contract rent”) plus any utility costs
incurred by the tenant. Utilities include electricity, gas, water and sewer, and trash removal
services but not telephone service. If the owner pays for all utilities, then gross rent equals the
rent paid to the owner.
Group Home. A type of congregate housing for people with disabilities; usually a single-family home.
Household. One or more people forming a single housekeeping unit and occupying the same housing
unit. (See definition of Family)
Housing Appeals Committee (HAC). A five-member body that adjudicates disputes under Chapter
40B. Three members are appointed by the Director of DHCD, one of whom must be a DHCD
employee. The governor appoints the other two members, one of whom must be a city
councilor and the other, a selectman.
Housing Authority. Authorized under G.L. 121B, a public agency that develops and operates rental
housing for extremely low-income and very-low-income households.
Housing Cost, Monthly. For homeowners, monthly housing cost is the sum of principal and interest
payments, property taxes, and insurance, and where applicable, homeowners association or
condominium fees. For renters, monthly housing cost includes rent and basic utilities (oil/gas,
electricity).
HUD. See U.S. Department of Housing and Urban Development.
Inclusionary Zoning. A zoning ordinance or bylaw that encourages or requires developers to build
affordable housing in their developments or provide a comparable public benefit, such as
providing affordable units in other locations ("off-site units") or paying fees in lieu of units to
an affordable housing trust fund.
Infill Development. Construction on vacant lots or underutilized land in established neighborhoods
and commercial centers.
Labor Force. The civilian non-institutionalized population 16 years and over, either employed or
looking for work.
Labor Force Participation Rate. The percentage of the civilian non-institutionalized population 16
years and over that is in the labor force.
Local Initiative Program (LIP). A program administered by DHCD that encourages communities to
create Chapter 40B-eligible housing without a comprehensive permit, e.g., through
inclusionary zoning, purchase price buydowns, a Chapter 40R overlay district, and so forth.
LIP grew out of recommendations from the Special Commission Relative to the
Implementation of Low- or Moderate-Income Housing Provisions in 1989. The Commission
prepared a comprehensive assessment of Chapter 40B and recommended new, more flexible
ways to create affordable housing without dependence on financial subsidies.
Low-Income Household. As used in the terminology of Chapter 40B and DHCD’s Chapter 40B
Regulations, low income means a household income at or below 50 percent of AMI. It includes
the HUD household income group known as very low income.
Low or Moderate Income. As used in Chapter 40B, low or moderate income is a household that meets
the income test of a state or federal housing subsidy program. Massachusetts follows the same
standard as the rest of the nation, which is that “subsidized” or low- or moderate-income
housing means housing for people with incomes at or below 80 percent of the applicable AMI.
Massachusetts Housing Partnership (MHP). A public non-profit affordable housing organization
established by the legislature in 1985. MHP provides technical assistance to cities and towns,
permanent financing for rental housing, and mortgage assistance for first-time homebuyers.
MassHousing. A quasi-public state agency that provides financing for affordable housing.
Mixed-Income Development. A residential development that includes market-rate and affordable
housing.
Mixed-Use Development. A development with more than one use on a single lot. The uses may be
contained within a single building ("vertical mixed use") or divided among two or more
buildings ("horizontal mixed use").
Moderate-Income Household. As used in the terminology of Chapter 40B and DHCD’s Chapter 40B
Regulations, moderate income means a household income between 51 and 80 percent of AMI.
However, in some federal housing programs, a household with income between 51 and 80
percent of AMI is called low income.
Non-Family Household. A term the Census Bureau uses to describe households composed of single
people living alone or multiple unrelated people sharing a housing unit.
Overlay District. A zoning district that covers all or portions of basic use districts and imposes
additional (more restrictive) requirements or offers additional (less restrictive) opportunities
for the use of land.
Regulatory Agreement. An affordable housing restriction, recorded with the Registry of Deeds or the
Land Court, outlining the developer's responsibilities and rights
Section 8. A HUD-administered rental assistance program that subsidizes "mobile" certificates and
vouchers to help very-low and low-income households pay for private housing. Tenants pay
30 percent (sometimes as high as 40 percent) of their income for rent and basic utilities, and
the Section 8 subsidy pays the balance of the rent. Section 8 also can be used as a subsidy for
eligible rental developments, known as Section 8 Project-Based Vouchers (PBV), which are not
"mobile" because they are attached to specific units.
Single Room Occupancy (SRO). A building that includes single rooms for occupancy by individuals
and usually includes common cooking and bathroom facilities shared by the occupants.
Subsidized Housing Inventory (SHI). A list of housing units that "count" toward a community's 10
percent statutory minimum under Chapter 40B.
SHI-Eligible Unit. A housing unit that DHCD finds eligible for the Subsidized Housing Inventory
because its affordability is secured by a long-term use restriction and the unit is made available
to low- or moderate-income households through an approved affirmative marketing plan.
Subsidy. Financial or other assistance to make housing affordable to low- or moderate-income people.
Sustainability. To create and maintain conditions under which people and nature can exist in
productive harmony while fulfilling the social, economic and other requirements of present
and future generations. For housing, sustainability requires an equity framework that includes
affirmative measures to provide greater energy-efficiency and healthy housing, to connect
housing to jobs, to improve access to affordable transportation, and to enhance educational
opportunity.
Typical, Non-substandard Rental Units. A term that defines the types of rental units that HUD
includes and excludes in establishing the FMR for each housing market area. The term
excludes: public housing units, rental units built in the last two years, rental units with
housing quality problems, seasonal rentals, and rental units on ten or more acres.
U.S. Department of Housing and Urban Development (HUD). The lead federal agency for financing
affordable housing development and administering the Fair Housing Act.
Very Low Income. See Extremely Low Income.
Workforce. People who work or who are available for work, either in a defined geographic area or a
specific industry.
Workforce Housing. There is no single industry standard that defines “workforce housing.” HUD
defines it as housing affordable to households earning between 80 and 120 percent of AMI.
The Urban Land Institute has traditionally used the term “workforce housing” to describe
units affordable to households with incomes between 60 and 100 percent AMI. By contrast,
MassHousing defines “workforce housing” as housing affordable to individuals and families
with incomes of 61 percent to 120 percent of AMI. In general, workforce housing is housing
for people who work in a community and the pricing methodology should account for wages
paid by local employers.
Town of Brewster
2198 Main Street
Brewster, MA 02631-1898
Phone: (508) 896-3701
Fax: (508) 896-8089
BPPC 06.29.2022 www.brewster-ma.gov Page 1 of 11
MINUTES OF THE BAY PROPERTY PLANNING COMMITTEE MEETING
DATE: June 29, 2022
TIME: 4:00 PM
PLACE: Remote Participation
PARTICIPANTS: Town Administrator Peter Lombardi, Members Amanda Bebrin, Mary Chaffee, Ned
Chatelain, Karl Fryzel, Patricia Hughes, Katie Miller Jacobus, Peter Johnson, Caroline McCarley, Clare
O’Connor-Rice, John Phillips and Thomas Wingard; Committee Alternate Allyson Felix;
Liaisons/Representatives Gary Christen, Catherine Fyfe, Debra Johnson, William Meehan, Kathleen Walker
and Maggie Spade
Absent: Janet Stolzer, Richard Perry
Call to Order, Declaration of a Quorum, Meeting Participation Statement and Recording Statement:
Peter Lombardi called the meeting to order at 4:02pm and read the meeting participation and recording
statements. Mr. Lombardi announced all members of the Committee who were present, a quorum was
declared. There were no public announcements or comments.
Election of Officers:
Selectperson Chaffee nominated Amana Bebrin for Chair, who accepted. Peter Lombardi second. No other
nominations. A roll call vote was taken. Selectperson Chaffee – yes, Selectperson Chatelain – yes, Pat Hughes
– yes, Thomas Wingard – yes, Karl Fryzel – yes, Peter Johnson – yes, Caroline McCarley – yes, Katie Miller
Jacobus – yes, John Phillips – yes, Clare O’Connor-Rice – yes, Amanda Bebrin – yes. Amanda Bebrin
confirmed as new Chair of the committee.
Mr. Lombardi agreed to chair the remainder of this committee meeting, but Amanda Bebrin will be chairing
all future meetings.
Peter Johnson nominated Katie Miller Jacobus for Vice-Chair, who accepted. Amanda Bebrin second. No
other nominations. A roll call vote was taken. Selectperson Chaffee – yes, Selectperson Chatelain – yes, Pat
Hughes – yes, Thomas Wingard – yes, Karl Fryzel – yes, Peter Johnson – yes, Caroline McCarley – yes, Katie
Miller Jacobus – yes, John Phillips – yes, Clare O’Connor-Rice – yes, Amanda Bebrin – yes. Katie Miller
Jacobus confirmed as new Vice-Chair of the committee.
Mr. Lombardi reviewed the role of Clerk, the primary role will be reviewing meeting minutes, providing any
editorial comments and checking for accuracy. Karl Fryzel nominated himself to serve as Clerk if nobody else
was willing. Selectperson Chatelain second. Mr. Fryzel accepted. No other nominations. A roll call vote was
taken. Selectperson Chaffee – yes, Selectperson Chatelain – yes, Pat Hughes – yes, Thomas Wingard – yes,
Karl Fryzel – yes, Peter Johnson – yes, Caroline McCarley – yes, Katie Miller Jacobus – yes, John Phillips – yes,
Clare O’Connor-Rice – yes, Amanda Bebrin – yes. Karl Fryzel confirmed as new Clerk of the committee.
Town of Brewster
2198 Main Street
Brewster, MA 02631-1898
Phone: (508) 896-3701
Fax: (508) 896-8089
BPPC 06.29.2022 www.brewster-ma.gov Page 2 of 11
Update on Solicitation for Consulting Services
Mr. Lombardi noted that $10,000 has been used for the purpose of paying consultants Reed Hilderbrand to
put together a scope of services. Over the late winter and into spring they finalized the scope of services and
project brief. An update on this scope of services was provided to the Select Board at their June meeting. It
was important to make sure that the scope was clear, and the expectations on prospective firms was clear.
Mr. Lombardi added that though this is technically exempt from state procurements requirements, we
wanted to make sure the Town went through this process so we had a range of options. We issued an RFI,
sent scope of services, project brief and a formal solicitation to select firms who are suited to this work.
These were sent to half a dozen firms at the beginning of June, and we gave them just over a month to
develop proposals to submit to the Town. Site visit for firms took place last week, and the Town contacted
several firms who didn’t attend the site visit but seemed initially interested, so we could get a sense of
whether they still were. We are targeting July 14 as the submission date. Mr. Lombardi noted that, from
there, our plan is to review these proposals. The consultant team will be supporting the comprehensive
planning efforts for both properties – we envision these will run in parallel for a while, but we recognize the
process for the pond property may be shorter. The plan is for Town Administration and relevant
departments to review those proposals, and then the Select Board chair, and then the chairs of each of the
committees. We will then review submissions and invite firms in to be interviewed – it will be important they
are a good fit for our approach and philosophy. Interviews will likely happen at the end of July and beginning
of August, and we expect to have a firm under contract by the beginning of August.
Mr. Lombardi explained that the Town has submitted a $75,000 grant application to the OneStop grant
program – the budget for this project is $250,000, we will know by October from the state if we have been
successful in this application. If we haven’t been, our intent is to ask Town Meeting for more money to cover
the appropriation we think we will need to do this work. We could leave the cost open ended, but we opted
to set a realistic budget to make sure proposals would be comparable from one to the next. Mr. Lombardi
noted that he would be happy to take questions.
Caroline McCarley asked if the Town has received real interest in the project from firms. Mr. Lombardi noted
that this is difficult to say, we did not ask firms to affirm their interest, but we did send a follow up email to
firms asking if they had additional questions or wanted to go on a site visit. We don’t know how many for
sure will submit a proposal. We don’t believe we have missed any suitable firms in our outreach, as the range
of firms the Town contacted covered the whole New England area.
Clare O’Connor-Rice asked if the interviews with these firms will be recorded or available to watch. Mr.
Lombardi responded that they are not planned to be, as generally these interviews are not done in public.
The recent Audit Committee interviews for new auditing firms were recorded, but this is a public body, so it
is a different situation. The group vetting applicants for firms for the Bay Property work is not a public body.
Mr. Fryzel asked how Mr. Lombardi came up with budget numbers. Mr. Lombardi responded that this figure
was developed taking into account available funds, the scope of services, and the timeline. The $250,000
Town of Brewster
2198 Main Street
Brewster, MA 02631-1898
Phone: (508) 896-3701
Fax: (508) 896-8089
BPPC 06.29.2022 www.brewster-ma.gov Page 3 of 11
number is realistic based on Reed Hilderbrand feedback – they have done a lot of similar work. $175,000 is
available, the Town has applied for the other $75,000 – if we are not successful in the grant application we
will have to look for another appropriation to cover the difference.
At the next meeting we will know how many proposals we have received and provide an update.
Pat Hughes noted that she likes the scope a lot, but feels the language suggests the consultant is the project
lead – she wants assurances from Mr. Lombardi that the committee will be driving the process. Mr. Lombardi
agreed, but stated that he does not want the consultants to feel coming in that they will have a lesser role –
but the Town did issue an addendum to RFI that provided firms with copies of charges for the committees,
so they are clear on the importance of the committee roles.
Update on Beach Naming & Short-Term Public Access
Mr. Lombardi noted that there will be a ribbon cutting on 6.30.22 at 6.00pm to open the new beach. The
beach will officially open to residents the following morning. This is an exciting day – there has been an all-
hands-on-deck effort by DPW and other departments to help get the site ready for public access. The beach
is in excellent shape and opening it for public use is something we prioritized soon after the Town took
possession of the property – we used federal ARPA funds to support this stage of the project. The beach will
be open from July 1 to Labor Day, 8.00am to 8.00pm, with 50 parking spaces open to residents only. The
Select Board adopted a beach policy specific to this property at their most recent meeting. Mr. Lombardi
added that we will require beach parking permits for residents for vehicular access – the gate attendants are
not checking residency for bikes or pedestrians. 30 kayak racks have been built, and there was a lottery
process for these spots. These spots are already filled, and there are 18-20 people on the waiting list for
these racks. Mobimats have been installed at the beach similar to Breakwater Beach and Paines Creek, in
order to provide the best mobility and access to the beach.
Gary Christen asked where the ribbon cutting will be held. Mr. Lombardi responded that it will be in front of
the new beach, behind the new boat house. Parking will be on the grass field near the entrance to the
property, then people will walk down the access road to the beach, adding that we had our first significant
rain event the other night, and the stormwater system at the site handled it really well. Mr. Lombardi
thanked Griffin Ryder, Jimmy Jones and DPW staff for all their work at the site.
Mr. Fryzel asked Mr. Lombardi to explain how the new beach will function in relation to its proximity to
Spruce Hill. Mr. Lombardi explained that Spruce Hill does not have formalized parking, but parking passes are
required. Spruce Hill is not a resident-only lot, but the Town will be formalizing the parking more, and staking
it off. If parking for the Bay property fills up, the gate closes, and gate staff will have discretion on when to
open up. The Select Board have discussed Spruce Hill, and we are requiring people using Spruce Hill to access
it from the Spruce Hill path, and not cut across the Bay property.
Selectperson Chaffee thanked everyone who worked to get the beach open. She noted that it is important to
provide the people of Brewster access to the beach, and having another beach is an asset to the town. She
Town of Brewster
2198 Main Street
Brewster, MA 02631-1898
Phone: (508) 896-3701
Fax: (508) 896-8089
BPPC 06.29.2022 www.brewster-ma.gov Page 4 of 11
asked if Mr. Lombardi can summarize the situation in relation to traffic flow. Mr. Lombardi explained that the
traffic flow will be one way in and one way out. Signs and markings for directions are there for people to
read. Cars will stop at the gatehouse while staff check for a resident beach sticker, then proceed down the
access road – they will drive past the cafeteria and behind the new boat house to parking spots. To exit, they
will drive to the left around the new boat house and head up on the access road on the eastern part of the
property beside the Arts Center. People should park only in the parking lot, both for liability reasons and
public safety access. Mr. Lombardi added that it will be busy early on in the season, especially with the nice
weather.
Mr. Fryzel asked if staff have been hired for this summer just to work at the Bay property. Mr. Lombardi
answered that the Town has indeed hired new seasonal staff specifically for this purpose, and they are
supervised by the Recreation Department. We have 5 full-time staff, and we will have 2 staff present
throughout the day on the weekend. These positions are funded through federal ARPA funding for this year,
and potentially next year as well.
Ms. O’Connor-Rice asked if somebody will also be present at the exit gate. Mr. Lombardi noted that the exit
gate is the same as the entry gate, but the barrier will be motion sensored at the exit gate. The gates will
close at 6:00pm – the beach is open 8:00am to 8:00pm, but there will be no new admittance after 6:00pm.
In that two-hour window the gate keeper will try and make sure people vacate the beach by 8:00pm.
Maggie Spade asked if the Town has a plan in place in case there is too much traffic back-up, given the
location in relation to Millstone Road and 6A. Mr. Lombardi responded that there is a surprising amount of
room for vehicles entering the property. With standard spacing in between cars, 25 cars can fit between the
gate and 6A, so we do not anticipate queuing issues.
Mr. Lombardi invited Selectperson Chaffee to discuss the beach naming. Selectperson Chaffee noted that
herself, Selectperson Chatelain, Donna Kalinick and Mr. Lombardi served as the working group to look at the
data from the beach naming contest with the goal of narrowing down the naming options. Ultimately the
group decided to select an option which would pay respect to the longer-term residents of property, the
Wampanoag Tribe. Four names were selected for the Select Board to vote on, and the name “First Light
Beach” was ultimately chosen. The Wampanoag Tribe is known as the “People of the First Light”. Mr.
Lombardi added to Selectperson Chaffee’s comments, noting that the Town, following on from similar policy
changes in other Cape towns, recently made free beach parking permits available to members of the
Wampanoag Tribe. We thought we should offer this at all Brewster beaches, given that there has been no
demonstrable negative impact at other Cape beaches for parking and usage. Mr. Lombardi concluded by
noting that the Town will also host movie nights on the property this summer, in addition to a concert by the
Brewster Band, and a touch a truck event – these are options for residents and visitors to enjoy the property.
Mr. Lombardi asked if there were any questions.
Town of Brewster
2198 Main Street
Brewster, MA 02631-1898
Phone: (508) 896-3701
Fax: (508) 896-8089
BPPC 06.29.2022 www.brewster-ma.gov Page 5 of 11
Mr. Fryzel asked if any members of the Wampanoag Tribe can use the beach pass, and if it was free of
charge. Mr. Lombardi responded that yes, the permits were free of charge and available to all Wampanoag
tribal members, not necessarily residents of the Cape.
Review of Phase II Report Findings & Remediation Plan
Mr. Lombardi explained that some preliminary findings in the Phase I report identified soil contamination,
due to the shooting range in the northeast quadrant of the property. The Town was aware of the issue, and
so commissioned a Phase II report to explore concerns about other contaminants. This report found that the
only problematic location was at the old shooting range. The Town has hired River Hawk Consulting to help
the Town comply with the state requirements in terms of reporting. They are now under contract for
$35,000 dollars to help with preliminary remediation work. Mr. Lombardi added that we have some
estimates on cost for remediation work. At this point the DPW has recently completed HAZWOPER training
with the County in anticipation of assisting with the immediate mitigation work that will need to be done in-
house. The DPW is onsite now making sure the property is secure prior to the public entering. It will be
fenced off and secure – trees in the vicinity were removed, all consistent with the SOP that was developed by
River Hawk. That work will be completed by the opening on Friday, July 1. There have been preliminary
reports to the DEP, and, once the site is secure, the Town will work with River Hawk to develop a scope of
work, issue solicitation, and hire workers to come in and do the clean up work. It will take about a year to
complete this work, although that timeline may be extended. The Town’s intent is to deal with it as soon as
possible – there is no evidence that the contamination is migrating – it’s specific to a very small area. We
have the Select Board ARPA funding plan which includes up to $250,000 for remediation work, so time will
tell whether this will be sufficient to do all the work or if we will need an additional appropriation. Mr.
Lombardi stated that he would be happy to take any questions.
Mr. Fryzel asked if there was any contractual protection for this environmental issue in the P&S, and if there
are no concerns for the impact on the water, or just for the soil? Mr. Lombardi responded that the Phase II
report was partially intended to address wider contamination concerns that were not approximate to the
site. The belief is that it is contained within the site for now. The P&S negotiations were complex, and the
Town knew there would be financial exposure associated with this work and assumed the responsibility for
that.
Ms. Spade asked if the ARPA funds have already been dispersed to the towns, and is it necessary to apply to
the County to receive the additional ARPA funds? Mr. Lombardi responded that Brewster has been directly
allocated a little over $1M in ARPA funds, and we have full discretion on how to use these funds. With the
additional funding, Brewster is eligible for $500,000 from County ARPA funds, but this is a separate process –
we do not anticipate using these funds for any Sea Camps project.
Follow-up Discussion from Site Visits
Mr. Lombardi asked if anybody wanted to make any general comments in relation to the site visits. Ms.
Hughes stated that she was glad to have participated – she was impressed with the number of structures and
found it helpful in terms of giving her a sense of the layout and the kinds of activities could take place.
Town of Brewster
2198 Main Street
Brewster, MA 02631-1898
Phone: (508) 896-3701
Fax: (508) 896-8089
BPPC 06.29.2022 www.brewster-ma.gov Page 6 of 11
Mr. Lombardi responded that every time he visits property he learns something new – that there will be
many more site visits because nothing compares to actually being there on the ground and talking things
through.
Thomas Wingard noted that he was very impressed too, and found it invaluable having Ed Barber present.
Mr. Wingard asked if Mr. Barber is now a full-time Brewster staff member? Mr. Lombardi confirmed that Mr.
Barber was hired in January – he is a great resource given his institutional knowledge, and navigating the
past 6 months without him would have been unimaginable.
Katie Jacobus Miller stated that, although conceptually, all members knew what an incredible opportunity
the purchase of the property was, being there provided far more insight. Ms. Miller also agreed that Mr.
Barber was a tremendous hire, and hearing stories from him about the different buildings was useful. She
would like him to be part of the community forums. Mr. Lombardi noted that Mr. Barber is open minded to
change on the property, and has seen the camp evolve over the years.
Amanda Bebrin extended her thanks to Selectperson Chaffee for acting as tour guide. Ms. Bebrin noted she
was thrilled to see in Reed Hilderbrand’s scope of work the point regarding the reuse of existing structures
where feasible. She is excited to imagine designing something in keeping with town character – there is room
for everything the committee would want to do. She added that the Local Comprehensive Plan has 10
building blocks, and it is feasible to build all of that vision into this property. Mr. Lombardi noted that we
continue to hear from residents with a whole host of ideas. The Town has lots of forums and outreach in our
conceptual project plan.
Mr. Fryzel stated that he was struck by magnitude of the property, and asked if the consultant will be
providing an existing conditions report as part of the project. Mr. Lombardi responded that we have to start
with examining the baseline conditions. This is the discovery phase and will be the first order of business for
the consultants. Mr. Lombardi added that we can’t get ahead of ourselves and look at use options without
having a good understanding of the property.
Mr. Fryzel asked if in-person meetings could take place at the property in the future. Mr. Lombardi
responded that it could be possible, but it would be a challenge for broadcasting meetings, and those who
have conflicts would be unable attend in person. He added that we want to have as many meetings
broadcast as possible, and this is not something that is currently possible at the Bay property, but there is a
balance to be had.
Discuss Potential Short-Term Uses for Arts Center & Wescott House
Ms. O’Connor-Rice and Ms. Bebrin discussed the potential short-term use for the Arts Center and Wescott
House. Ms. O’Connor-Rice noted that the interest of local artists to use the Arts Center gives us a great
opportunity. She added that a grant might be obtainable through the Mass Cultural Council for these
purposes. In order to determine the use of the building, she added that work with the COA and the
Recreation Department, Mass Audubon, and the YMCA, to gain their input on use options would be crucial.
Town of Brewster
2198 Main Street
Brewster, MA 02631-1898
Phone: (508) 896-3701
Fax: (508) 896-8089
BPPC 06.29.2022 www.brewster-ma.gov Page 7 of 11
Ms. O’Connor Rice added that the aforementioned grant is due in September. She noted that she would be
very happy to work on this with the Cultural Council. People who saw the building felt it was usable the way
it is – Brewster artists would love to have activities here, and it might be possible to pay someone to
coordinate the activities.
Selectperson Chatelain agrees that both buildings are a good opportunity. He is apprehensive, however
about taking a building-by-building approach – he asked if Ms. O’Connor Rice had a particular use in mind,
and could we make the space available while as a committee focusing on the global redesign of the site.
Ms. O’Connor Rice responded that if it was specifically organized, the Cultural Council could meet and
prioritize the funds allotted for next year, and potentially prioritize programs at this site. She does not think
it should be this committee that coordinates what happens in that building, but thinks there are groups and
other departments who could come together to work out a short-term solution. Long-term use should be
coordinated with rest of the buildings. The idea of having an artist living on the property, as occurs in
Provincetown properties, would be good.
Mr. Fryzel asked if the Wescott House is the building with the apartments. Mr. Lombardi confirmed that it
was, and then noted the Town’s thoughts on short-term access for the property. He noted that they
originally considered opening up the pool up this summer, and expected there to be significant interest in
having the pool open to residents next summer. Other amenities onsite are similarly turnkey – for instance,
Mike Gradone, the Recreation Director, wants to use the athletic fields for sports. There is also interest in
formally moving the summer recreation program over to the site. The fields, the pool, the Art Center, and
the boathouse are the most turnkey amenities. Instead of taking things individually, we should plan short-
term use but recognize that it will take multiple years to get through longer-term planning. Mr. Lombardi
added that we may want to talk about what short-term uses will look like conceptually. The challenge in
terms of operations is once the Arts Center is opened, you are essentially opening up the whole property.
The aim should be to do this holistically – we want to develop a plan that takes all of these amenities into
account.
Ms. O’Connor Rice stated that feedback could be obtained from artistic Brewster residents. We could look at
having a series of special events that would show commitment to the local artist community that the
building will be accessible – this is an opportunity we should not pass up.
Selectperson Chaffee noted that the committee is at important point in their work together, both Ms.
O’Connor Rice and Selectperson Chatelain had made good points. But it is clear there are already competing
priorities – as a group we need to decide what is going to guide us. A list is needed of short-term possible
uses; there are a lot of competing interests for short-term use. Selectperson Chaffee noted that the
committee and Town Administration need a process and criteria to determine how we will prioritize short
term uses. In a more complex way, we need to do the same for the longer-term use, which is the meat of the
work. We need to look at plans such as the Vision Plan to understand what the priorities of Brewster
residents might be, and those plans, in addition to upcoming forums, will help to shape the decisions we
Town of Brewster
2198 Main Street
Brewster, MA 02631-1898
Phone: (508) 896-3701
Fax: (508) 896-8089
BPPC 06.29.2022 www.brewster-ma.gov Page 8 of 11
make. The most dangerous path ahead is to try to work through this process without any method – we need
a process as we work together.
Ms. Hughes noted that the main issue in relation to the property is access – we will only allow 50 cars for
residents in the current lot. We need to discuss where to put vehicles more generally speaking. She added
that this is the context within which decisions about use need to be made. Mr. Lombardi noted that he
agreed with Ms. Hughes point. He provided an example that there are only 5 parking spots near the pool, but
the pool has an occupancy size of 200 people. That is just one example of the considerations for managing
traffic and access for short term uses across the site.
Ms. O’Connor-Rice noted that we have an opportunity now to experiment with different approaches. She
advocated creating a series of activities to test the limits of how the space is used, to see what works and
what doesn’t work.
Selectperson Chatelain stated that when September arrives, the committee will realize that there are other
demands for the site than just summer activities. Doing test activities in indoor spaces might be worthwhile
and soliciting this feedback from the community in the winter would be beneficial. Mr. Lombardi responded
that it would be possible to structure outreach to obtain feedback on short-term uses.
Ms. O’Connor-Rice explained that it would be possible to write an amorphous enough grant for general
support without determining the uses, while outlining a couple of fun activities leading up to the winter just
so it is clear in the application that we understand the need to have programming. Mr. Lombardi responded
that it is great to identify grant opportunities, but we need to develop a plan before putting in for grant
funding as opposed to it happening in reverse.
Mr. Fryzel asked if the consultants will guide us through the process Selectperson Chaffee outlined in terms
of dealing with competing interests. Mr. Lombardi replied that, yes, the Town will use them as a resource. It
is expected that a high-level plan will be developed outlining who will responsible for which areas. And,
having managed similar projects before, the firm in question will be able to handle the issue of multiple
stakeholders.
Ms. O’Connor-Rice added that the grant money could help develop a plan for the use, and she believed that
the MCC could help with this.
Ms. Spade stated her view that recreation activities were often discussed in relation to the property due to
the prior use of the camp, and it is important that the arts and culture do not get forgotten because of this.
She believes that we should not pass up the opportunity to miss this MCC funding. It is important that people
in the arts do not think this site will have no space for them, and we need to be inclusive of arts and culture.
Mr. Lombardi agreed that it is important that the property is usable after Labor Day. The Pond Property
Committee has also talked about pilot programming at their site to get an initial sense of long-term use.
Town of Brewster
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Brewster, MA 02631-1898
Phone: (508) 896-3701
Fax: (508) 896-8089
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Selectperson Chaffee noted that although interesting conversations were taking place here, we are not going
to have consultants on board until mid-August, so the heart of the process will not happen until the firm is
on board. Mr. Lombardi added that this is not to say the consultants will be leading the process, but they
have worked on similar projects before and can help with these discussions.
Ms. Bebrin noted that in terms of the Wescott house, she hears from many residents about the housing
crisis. She believes that the apartments are in good shape but having people in these units would be an
ongoing operational use. Ms. Bebrin added that if a list is being developed, Wescott house should be in
consideration as a priority for short-term use.
Ms. O’Connor-Rice responded that she read an article in the Cape Cod Chronicle regarding beaches having
trouble hiring lifeguards. She believes that if they can be housed somewhere, like Wescott, maybe that
would be helpful to the hiring issue. Mr. Lombardi stated his agreement – the biggest hurdle to opening the
pool, was a lifeguards staffing shortage – we were lucky to get the handful of staff that was needed for the
beach. 12-15 lifeguards would be required to operate the pool 7 days a week in the high summer. He added
that Wescott House is indeed a relatively turnkey amenity, and it makes sense to look at opening it for use.
Trying to make it available to low-income residents is feasible, but the details get complicated very quick.
Ms. Bebrin stated that nothing can be decided in a vacuum. She is a huge housing advocate, but the
committee is focused on the big picture, and a holistic view is certainly needed. Mr. Lombardi added that
lifeguards are not the only issue, there is a broader workforce housing issue for teachers and firefighters.
Ms. McCarley stated her appreciation of Ms. Bebrin and Ms. O’Connor-Rice’s ideas. She also added her
appreciation of Selectperson Chaffee’s framing of committee responsibilities. Ms. McCarley added that the
sooner the committee can meet in person, the more helpful it will be for members and the consultants to
understand how they will work together. Everyone has ideas, but the committee needs to get to know each
other better.
Discuss Upcoming Meeting Schedule & Format
Mr. Lombardi explained that the state has allowed for expanded Open Meeting Law provisions. These are set
to expire on July 15. There is a provision in the state budget to extend this law through to December 2023,
and we are hopeful they will continue beyond this period, because although meeting in person is valuable,
the flexibility of meeting remotely has been very beneficial. Mr. Lombardi added that he believes a decision
will be made by July 15, but we are currently in a holding pattern. The Select Board has developed an
updated remote participation policy to reflect the potential scenario which would allow committees to meet
in a hybrid format. Mr. Lombardi explained that the Town is trying to allow for continued public participation
remotely, with hybrid committee members, and hybrid participation. There were a very limited amount of
those meetings last summer. The next meeting is July 19 – assuming a majority will be meeting in person –
the Chair will be responsible for ensuring a quorum is physically present. The tentative plan is for the
Town of Brewster
2198 Main Street
Brewster, MA 02631-1898
Phone: (508) 896-3701
Fax: (508) 896-8089
BPPC 06.29.2022 www.brewster-ma.gov Page 10 of 11
meetings to occur at Town Hall, and we will be looking to broadcast as many as possible. If things change, we
will let you know.
Mr. Fryzel noted that there have been severe technical difficulties in the past with hybrid meetings, and
wants to know how this will be avoided. Mr. Lombardi noted that we will have to make this work, and the
Town will work to troubleshoot to be sure it will work. Technology can be a challenge – it can derail a
meeting and be very distracting. Hopefully this won’t be the case. If technical issues occur, we will have to
jump back to a remote format until we get it right. Mr. Fryzel responded that people in the corporate world
are having the same difficulties, and maybe Zoom isn’t equipped for hybrid meetings. Mr. Lombardi noted
that an added layer of complexity exists because there is onsite, broadcast, remote, livestream, and Channel
18 to consider – it’s a lot of mediums to blend together.
Mr. Lombardi closed by noting we will have a consultant selected by the next meeting, and we will have to
decide whether it makes sense to go to a 2-meetings-a-month schedule from August onwards. We will know
more on the 19th.
Vote on Meeting Minutes: April 19 and May 10, 2022
Ms. Hughes moved to approve the minutes for April 19.
Ms. Jacobus Miller noted that she was in attendance on April 19th. And the name of Ms. O’Connor-Rice was
typed out incorrectly. The minutes were seconded by Mr. Fryzel, as amended.
A roll call vote was taken. Selectperson Chaffee – yes, Selectperson Chatelain – yes, Pat Hughes – yes,
Thomas Wingard – yes, Karl Fryzel – yes, Peter Johnson – yes, Caroline McCarley – yes, Katie Miller Jacobus –
yes, John Phillips – yes, Clare O’Connor-Rice – yes, Amanda Bebrin – yes.
Pat moved to approve the minutes May 10. Seconded by Karl.
A roll call vote was taken. Selectperson Chaffee – yes, Selectperson Chatelain – yes, Pat Hughes – yes,
Thomas Wingard – yes, Karl Fryzel – yes, Peter Johnson – yes, Caroline McCarley – yes, Katie Miller Jacobus –
yes, John Phillips – yes, Clare O’Connor-Rice – yes, Amanda Bebrin – yes.
Discuss Future Meeting Agenda Items
Ms. Hughes asked for a quick report on beach access. Mr. Lombardi agreed. Mr. Fryzel asked if the
committee should continue their discussion of the short-term use of Wescott House. Mr. Lombardi replied
that he thinks narrowly looking at this one house might be too narrow of a discussion, but that Jill Scalise,
the Housing Coordinator, would be invited to attend and discuss reuse of any one of these structures for the
purposes of housing. Mr. Fryzel asked if there could also be a potential update on the MCC grant. Ms.
O’Connor-Rice agreed it should be on the agenda, but there will likely not be too much more information by
then.
Town of Brewster
2198 Main Street
Brewster, MA 02631-1898
Phone: (508) 896-3701
Fax: (508) 896-8089
BPPC 06.29.2022 www.brewster-ma.gov Page 11 of 11
Matters Not Reasonably Anticipated by the Chair:
None
Next Meetings:
July 19, August 2, and August 16, 2022.
Adjournment
Mr. Fryzel moved to adjourn at 6:07pm. Ms. Hughes second. A roll call vote was taken. Selectperson Chaffee
– yes, Selectperson Chatelain – yes, Pat Hughes – yes, Thomas Wingard – yes, Karl Fryzel – yes, Peter Johnson
– yes, Caroline McCarley – yes, Katie Miller Jacobus – yes, John Phillips – yes, Clare O’Connor-Rice – yes,
Amanda Bebrin – yes.
Respectfully submitted by Conor Kenny, Project Manager
Approved: __________________ Signed: _________________________________________
Date
Accompanying Documents in Packet: Agenda, CCSC Comprehensive Planning Documents, Beach Naming Contest Information & Access
Plans, CCSC Signed Contract, Bay Property Abatement Plan, Brewster Soil Budgetary Costings, ARPA Memo, Cultural Council Grants
Document, BPPC 4.19.22 Minutes, BPPC 5.10.22 Minutes
Town of Brewster
2198 Main Street
Brewster, MA 02631-1898
Phone: (508) 896-3701
Fax: (508) 896-8089
BPPC 07.19.2022 www.brewster-ma.gov Page 1 of 8
MINUTES OF THE BAY PROPERTY PLANNING COMMITTEE MEETING
DATE: July 19, 2022
TIME: 4:00 PM
PLACE: Remote Participation
PARTICIPANTS: Town Administrator Peter Lombardi, Members Amanda Bebrin, Selectperson Mary Chaffee,
Selectperson Ned Chatelain, Karl Fryzel, Katie Miller Jacobus, Peter Johnson, Caroline McCarley, Clare
O’Connor-Rice, William Meehan, Patricia Hughes, Thomas Wingard; Liaisons/Representatives Gary Christen,
and Maggie Spade
Absent: Janet Stolzer, Richard Perry, Debra Johnson, Kathleen Walker, Catherine Fyfe, Allyson Felix, and John
Phillips
Call to Order, Declaration of a Quorum, Meeting Participation Statement and Recording Statement:
Amanda Bebrin called the meeting to order at 4:00pm and read the meeting participation and recording
statements. Ms. Bebrin announced all members of the Committee who were present, a quorum was
declared. There were no public announcements or comments.
Public Announcements and Comments
None
Update on Solicitation for Consulting Services
Town Administrator Peter Lombardi provided an update on solicitation for consulting services. Mr. Lombardi
noted an RFI was issued to a select number of firms to provide consulting services, and proposals were due
last Thursday. Mr. Lombardi added that the Town had done some secondary outreach to firms, but
ultimately only received one proposal. The firm in question, Reed Hilderbrand, meets the minimum
requirements of the solicitation. We had discussed having a working group vet these submissions, and we
also included a provision for an interview with the form. Mr. Lombardi noted that even though we only
received one bid, it would be worthwhile having a discussion to understand what the firm’s approach will
look like and how it will align with the Town’s priorities. After an interview, a decision will then be made
whether or not to work with this firm, or to put out another RFI. The Town has not yet looked at the firm’s
price proposal because this will follow the initial review. Mr. Lombardi said he would be happy to take any
questions.
Peter Johnson asked if was a surprise to just receive one bid. Mr. Lombardi responded that this RFI wasn’t
put out broadly because of concerns about the complexities of this project and the skillsets that would be
needed. We did not want to consider firms lacking the necessary experience or qualifications. That being
said, the Town did reach out to 5 or 6 firms, and held an optional site visit with a low attendance. Reading
the tea leaves, there may have been some firms that saw Reed Hilderbrand were engaged with the Town to
prepare the front end specs, and paid them a professional courtesy, assuming they would be the ones who
Town of Brewster
2198 Main Street
Brewster, MA 02631-1898
Phone: (508) 896-3701
Fax: (508) 896-8089
BPPC 07.19.2022 www.brewster-ma.gov Page 2 of 8
would ultimately do the work. Mr. Lombardi added that this was one of the issues with having a firm prepare
the front end documents, but we felt it was important to have help developing a project brief and scope of
services. We did, however, think we would get more than one proposal.
Selectperson Chaffee asked if, looking at the process, Mr. Lombardi still believed the Town would have a firm
under contract by mid-August? Mr. Lombardi responded that yes, unless there’s a reason after the review
and interview to not move forward, the timeline will not change.
Update on Beach Operations & Upcoming Summer Events
Mr. Lombardi noted that the beach has been open for about 3 weeks, and there have been no significant
operational issues. One high level issue has been education and awareness to residents about the
delineation lines of the property. When arriving at the beach, residents should take a right turn. There has
been some confusion that the property to the west was not part of the First Light Beach – it is private land.
More signs and education at the gate house have been provided to prevent confusion. Otherwise, the usage
of the beach has not been excessive, the sign at the front of the property has worked, and residents have
been patient – there has been ebbs and flows with the parking demand. From mid-to-late afternoon there is
more availability to get on the property. There have been no complaints to the Select Board office about
residents being unable to access the property.
Mr. Lombardi noted that, in terms of our summer events, we have been putting this information on social
media. The Recreation Department and Ladies Library have publicized these. We anticipate a good turnout
for these events, and first one is coming up in a few days on Friday night. Mr. Lombardi said he would be
happy to take any questions.
Karl Fryzel asked how many times have we had to limit people coming in to the property. Mr. Lombardi
responded that he could ask the Recreation Director if he has tracked this information, but anecdotally, the
“parking lot full” sign is out frequently at the weekend on Saturday and Sunday mornings. But it fluctuates
throughout the day, and normally comes down by mid-to-late afternoon. Adding that we have seen residents
who have never purchased beach permits before buy them this year so that they can access First Light
Beach.
Mr. Fryzel asked if taxpayers who own property in town, not just year-round residents, can obtain a resident
beach pass. Mr. Lombardi responded that this was true, and, as such, year-round residence was not a
requirement to access First Light Beach, or any other Brewster beach.
Caroline McCarley noted that the parking sign has been up with regularity, but has also heard from residents
very positive comments about the access set-up, the property itself, and the staff.
Mr. Fryzel noted his agreement that the traffic flow and parking is set up nicely.
Discuss Potential Short-Term Uses
Town of Brewster
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Brewster, MA 02631-1898
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Ms. Bebrin opened by noting that having a consultant on board will help in this matter. The discovery
process of existing conditions will help the committee in understanding what the limitations are. When a
consultant is contracted, the committee should work on paring down a list of possible short-term uses. Ms.
Bebrin invited comments from other committee members.
Clare O’Connor Rice suggested that the committee considers using the arts building once a month to
highlight local Brewster artists as a way of encouraging more artists to be seen more in town. Ms. Rice added
that she understands any hesitation to hold consistent standing events, and so suggests that the Council on
Aging and Recreation Department also hold some events there. We should use it as an opportunity to test
some of the issues the consultant raises, such as traffic management.
Mr. Fryzel likes that approach, and is mindful of Mr. Lombardi’s comments at a prior meeting that it would
be a shame if the property is unused by residents after Labor Day. On the other hand, he is wondering how
to make it clear to people that no programming will be set in stone, and that there will be no commitment
for any of the interim uses to be a long-term use. Ms. Bebrin responded that this part of the approach needs
to go hand-in-hand with outreach to residents. Part of the invitation to be on the property is going to be
asking people how they want to use the property.
Selectperson Chaffee asked if, for short-term uses, we would be defining this as a 2-3 year window. Adding
that bringing the pool into use next summer should be top of the priority for uses. Selectperson Chaffee
noted that she has taken phone calls from Barnstable County Commissioners asking if we would consider
using any of the existing structures for workforce housing, adding that she is not weighing in on that, but
making it known that we have received that call.
Selectperson Chatelain commented that the committee should reach out to afterschool programs and
Nauset Youth Alliance to see if they have a need for spaces this coming winter and the next, and also the
Recreation Department to see if they would like to use the space in the winter and next year.
Ms. O’Connor-Rice commented that from her discussions with the Recreation Department, there was
certainly interest in an expanded array of offerings beyond their regular offerings.
Thomas Wingard asked Mr. Lombardi to comment on the Town’s stance on leasing/renting existing cabins.
Mr. Lombardi responded that we need to have these discussions. We have fielded calls from housing
organizations about this. The committee should use the interim use period to ground truth and see how
ideas work on a practical basis. Potential Recreation Department uses involve having fall events like
weekend-long jamborees. In terms of the big picture, we need to look at opening up the pool and seeing if it
makes sense to move the summer program over to the site. This will be a tall order, but it should be up for
consideration.
Mr. Fryzel noted that Orleans has been successful recently in terms of providing housing for lifeguards –
given that Brewster now has the advantage of all these buildings, he wonders if we could consider using
Town of Brewster
2198 Main Street
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Phone: (508) 896-3701
Fax: (508) 896-8089
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them for housing. Mr. Lombardi responded that this should be on the table – Orleans was an outlier in being
able to get lifeguard staff this summer, but providing housing for lifeguards could put us in stronger position.
Mr. Lombardi added that the primary issues in terms of the pool are staffing and then the financial model
that the Town would have to employ – in-house, or soliciting an agency to run the program on the Town’s
behalf. If we operate it in-house, the Town would have to set up a new revolving fund which would require
some initial seed money to cover the start-up costs – this would mean there would have to be an
appropriation by Town Meeting. The fees collected from the revolving fund would lag a year behind, and
would cover the following year’s operations.
Mr. Fryzel commented that, in terms of possible housing, keeping some of the property in reserve for
lifeguard housing would be helpful. Mr. Lombardi noted that as we move further along with deciding on
short-term uses, the Town must work with Town Counsel and the insurance carrier on these projects. There
are approximately $50,000 in liability insurance costs for the coming fiscal year for the two Sea Camps
properties – that covers the current use today for public access and general municipal purposes and limited
activity on the site. Mr. Lombardi added that our insurance carrier doesn’t provide these coverages, so they
had to bring in another firm to help cover the whole portfolio. However, that is not a reason not to have
these initial conversations.
Mr. Wingard stated that pool access and Recreation Department usage should be front and center in terms
of short-term uses for the property, and asked if lifeguards would be Town employees. Furthermore, Mr.
Wingard asked what the potential use of buildings for housing people other than town employees would
mean for the Town in terms of liabilities. Mr. Lombardi commented that Jill Scalise, Brewster’s Housing
Coordinator, was not available tonight, but she will be present at the August 16 meeting to discuss the
potential for housing at the site, recognizing that different housing options are going to require a whole host
of considerations.
Maggie Spade-Aguilar noted that Orleans is planning on doing a resident survey for people who work in their
town but don’t live there, asking what they would need in order to live in the town, and what they would like
any potential housing to look like. This is an interesting concept for discussions around housing on this
property. Ms. Spade-Aguilar noted the need to consider if such housing would be year-round, or if it would
be seasonal – we need to consider the idea of whether those working on the property would have first
preference. Ms. Spade-Aguilar asked if beach access continue will continue after the summer, and, if so,
would it continue to be resident-only? Mr. Lombardi responded that the plan right now is to allow beach
access only in the summer months due to the lack of staffing capacity to monitor access after Labor Day,
adding that the Town has concerns about gates being open and permitting unsupervised access to property
given limitations on the liability insurance. The fact that beach access will end after Labor Day is why it’s
important to discuss other short-term access now. Mr. Lombardi agreed that Ms. Spade-Aguilar’s idea about
a survey is a good one, and added that workforce plan housing needs should be identified and understood
before we get too far along. On the housing front, whatever we do will be complex, and take time. There is a
need to be careful and respectful of the public process to come to a consensus on a long-term plan, and not
get too far ahead. Housing for lifeguards is more straightforward as an interim idea.
Town of Brewster
2198 Main Street
Brewster, MA 02631-1898
Phone: (508) 896-3701
Fax: (508) 896-8089
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Ms. McCarley noted that there was consensus about the pool opening, and this is something she wants to
see happen next summer. Ms. McCarley asked how we would decide on a process for these ideas. Mr.
Lombardi responded that it would be helpful at the next meeting to refine a short-term use shortlist. The
committee should come to agreement about what these are, and which ones in particular are priorities. The
first stop for most of these ideas will be soliciting feedback from town staff on how to handle them
operationally, then bringing this feedback to the committee. At the same time, our consultants will be taking
up the discovery phase of their work, and that will also help short-term use discussions. The timing will align
in this sense.
Gary Christen stated that property has over 90 buildings, and if we allow them to remain, they will decay on
their own. The step with consultants will be discussing the elimination of the buildings, but the ones that are
deemed surplus can be offered to the public, and companies could help move the buildings to people’s
properties and bring them up to code. Mr. Christen stated that this idea, to distribute the properties
throughout the Town, should be considered. Adding that if even 5 of the buildings ended up being reused as
permanent housing, that would be wonderful – there is a need to discuss disposing of this housing in a way
to benefit the community.
Selectperson Chaffee said that the use of the fields and amphitheaters also needs to be discussed. We need
to discuss a way to have community groups use these facilities to have outdoor events or meetings in the Fall
and Spring.
Mr. Lombardi responded to Mr. Christen’s idea, stating part of the consultants’ work will be to analyze and
make recommendations on the structures – ie. what should be disposed of, what should be repurposed off-
site. Structures may have a useful life elsewhere, but might not have a use on the bay property.
Ms. O’Connor-Rice noted that she likes the word “interim” instead of short-term, as it is more appropriate
Mr. Fryzel commented that the discovery phase is crucial, as we need to know what the consultants think of
these structures. He asked Mr. Lombardi when the consultants will have this phase completed. Mr. Lombardi
responded that this stage should take 3-4 months. Mr. Fryzel replied that it would be useful to know which
ones are turnkey for interim use, and which ones would take more work. Mr. Lombardi stated that Cape Cod
Sea Camps managed their properties very well – they did their own inventory recently which we can use to
accelerate our own review process of the buildings.
Ms. Bebrin concluded by noting she would like the committee to consider a community event featuring
restaurant and service providers.
Discuss Proposed Amendment to Bay Property Planning Committee Charge
Mr. Lombardi noted that the idea to amend the committee charge has been discussed for several months.
The charge was drafted back in September – at the time we knew there would be some significant
Town of Brewster
2198 Main Street
Brewster, MA 02631-1898
Phone: (508) 896-3701
Fax: (508) 896-8089
BPPC 07.19.2022 www.brewster-ma.gov Page 6 of 8
implications for decisions made on uses for this property. Mr. Lombardi noted that if the committee decides
to move forward with a community center, for instance, it would then have to discuss the impact for the
existing COA building, the Elementary School, and Town Hall. The Town realized through discussions with
Reed Hilderbrand that this would be a complicated process. There is a feeling that considerations for uses of
properties on other sites would be too broad of charge for this committee, and so the Select Board has
discussed eliminating that language from this committee’s charge. The focus will instead be on the bay
property itself – there may be implications for other Town properties, but we can decide at a future time
who will address this.
Selectperson Chatelain stated that this change will allow the committee to be more focused and not worry
about tertiary matters. He is supportive of a more focused charge.
Mr. Fryzel agreed that this made sense, and asked if the Select Board has voted on it. Mr. Lombardi
responded that this was just an initial discussion, and then if the committee was supportive he would report
back to the Select Board and they would make a decision from there. Mr. Fryzel commented that the
committee has plenty on its plate, and it couldn’t achieve these goals if it has to consider the impact on other
buildings too.
Ms. Miller-Jacobus added that she too was supportive of this change.
Ms. Hughes also stated her agreement, but noted the committee could have a role for providing information
regarding other structures.
Selectperson Chaffee made a motion that the committee vote to communicate to the Select Board that we
submit the changes in the language. Mr. Fryzel second. A roll call vote was taken. Thomas Wingard – yes,
Selectperson Chaffee – yes, Selectperson Chatelain – yes, Karl Fryzel – yes, Katie Miller-Jacobus – yes, Peter
Johnson – yes, Caroline McCarley – yes, Clare O’Connor-Rice – yes, William Meehan – yes, Patricia Hughes –
yes, Amanda Bebrin – yes.
Vote on Meeting Minutes: June 29, 2022
These minutes will be voted on at the next scheduled meeting.
Discuss Future Meeting Agenda Items
Mr. Fryzel noted that he would like to see the consultant discussed at the next meeting, and asked Mr.
Lombardi if part of the process will include references and discussions with other communities who have
used this particular consultant. Mr. Lombardi said that there was a reference check component of the
process built into the solicitation.
Ms. Hughes asked if the committee could set time aside to review some of the various existing reports and
analyses and have a summary of these available for our process – the Coastal Resources Management Plan,
Open Space Plan, and the Housing Production Plan. This would allow the committee to have a better sense
Town of Brewster
2198 Main Street
Brewster, MA 02631-1898
Phone: (508) 896-3701
Fax: (508) 896-8089
BPPC 07.19.2022 www.brewster-ma.gov Page 7 of 8
of what has already been done, and some of the recommendations in these plans for this property. Ms.
Hughes offered to put a summary list together if the committee would be interested.
Ms. Jacobus-Miller stated her agreement with Ms. Hughes idea, and also asked how it would be possible to
submit new ideas before the next meeting. Ms. Bebrin and Mr. Lombardi stated that ideas should be sent
directly to either one of them – for ideas not previously discussed, they should be sent to Mr. Lombardi.
These ideas should not be submitted to the whole group so they don’t constitute a discussion outside of the
quorum – it is also important to avoid serial communications.
Mr. Fryzel also stated his agreement with Ms. Hughes’ suggestion, and asked who would make these
presentations? Mr. Lombardi commented that an appropriate person would have to be identified for each
presentation. This will take time and work.
Mr. Fryzel asked if Mr. Lombardi agreed that the committee should develop a shortlist of short-term uses on
August 16. Mr. Lombardi concurred.
Selectperson Chaffee asked if, as Ms. Hughes was Chair of the Coastal Committee, she could present on the
Coastal Resources Management Plan. Ms. Hughes said she would check in with Chris Miller first, but would
be happy to do the presentation.
Discuss Upcoming Meeting Schedule & Format
Mr. Lombardi stated that the deadline for continuation of expanded Open Meeting Law was last Friday. The
State Legislature came up with temporary fix to keep it in place through to next Spring, signed into law by
the Lieutenant Governor. For this month and next, we will stick with the same format that’s been in place
since April. Boards and committees can meet in person if so inclined, but public participation will remain fully
remote until September. Mr. Lombardi added that, in September, we will pivot to meeting mostly in-person.
A majority of committee members will have to be there in-person, as will the Chair. The public will then be
able to participate either in-person or remotely, and some committee members can participate remotely.
The committee could meet in person next month or wait until September. It will likely transition to the in-
person option in September.
Ms. Bebrin noted that she sent a survey to committee members to solicit interest in meeting in person. Ms.
Bebrin then asked meeting participants who would be interested in meeting on August 16 in person. Mr.
Fryzel, Mr. Johnson, Ms. Miller-Jacobus, Mr. Wingard, Selectperson Chatelain and Ms. McCarley raised their
hands. Ms. Bebrin reminded committee members an in-person quorum would be required, and Mr.
Lombardi agreed to tentatively plan to have the August 16 meeting at town offices.
Ms. Spade-Aguilar asked if that survey also went to non-voting members. Ms. Bebrin said it did not, but she
will make sure liaisons are on the distribution list for August.
Next Meetings: August 16, September 13, and September 27, 2022
Town of Brewster
2198 Main Street
Brewster, MA 02631-1898
Phone: (508) 896-3701
Fax: (508) 896-8089
BPPC 07.19.2022 www.brewster-ma.gov Page 8 of 8
Matters Not Reasonably Anticipated by the Chair:
None
Adjournment
Mr. Fryzel moved to adjourn at 5.13pm. Katie Miller Jacobus second. A roll call vote was taken. Katie Miller-
Jacobus – yes, Karl Fryzel – yes, Selectperson Chaffee – yes, Selectperson Chatelain – yes, Pat Hughes – yes,
Peter Johnson – yes, Caroline McCarley – yes, Clare O’Connor-Rice, Thomas Wingard – yes, Amanda Bebrin –
yes.
Respectfully submitted by Conor Kenny, Project Manager
Approved: __________________ Signed: _________________________________________
Date
Accompanying Documents in Packet: Agenda, Memorandum on Planning Committee Charge, Memorandum on Sea Camps Planning
Committees