HomeMy Public PortalAboutVPC 08/29/22 Meeting Packet
Town of Brewster
Vision Planning Committee
2198 Main St., Brewster, MA 02631
brewplan@brewster-ma.gov
(508) 896-3701
MEETING AGENDA
2198 Main Street, Room A
Monday, August 29, 2022 at 3:30 PM
Pursuant to Chapter 20 of the Acts of 2021, 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:
Meetings may be joined by:
1. Phone: Call (929) 436-2866 or (301) 715-8592. Zoom Meeting ID: 819 3038 8203 and Passcode 317154
To request to speak: Press *9 and wait to be recognized.
2. Zoom Webinar: https://us02web.zoom.us/j/81930388203?pwd=VHEvUURMM1ZFdUJNREJIbEN3SFdOZz09 and enter Passcode 317154
To request to speak: Tap Zoom “Raise Hand” button or type “Chat” comment with your name and address, then wait to
be recognized.
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).
Vision Planning
Committee
Hal Minis
Chair
Sharon Tennstedt
Vice Chair
Amanda Bebrin
Andi Genser
Patricia Hess
Suzanne Kenney
Fran Schofield
Alex Wentworth
Town Planner
Jon Idman
Admistrative
Assistant
Ellen Murphy
Select Board
Liaison
Kari Hoffmann
Finance Committee
Liaison
Honey Pivirotto
1. Call to Order
2. Declaration of a Quorum
3. Meeting Participation Statement
4. Approval of August 15th meeting minutes
5. Review draft LCP by Tighe and Bond, including public comments on LCP overview & draft
Action Plan
6. Discuss LCP timeline
7. Update on Sea Camps Planning
8. Items for next agenda
9. Review Action items from August 15th meeting
10. Next Meeting: Monday, September 19th
11. Matters Not Reasonably Anticipated by the Chair
12. Adjournment
Date Posted: Date Revised: Received by Town Clerk:
8/18/2022
Page 1 of 3
TOWN OF BREWSTER VISION PLANNING COMMITTEE
MEETING MINUTES
Monday, August 15, 2022, at 3:30PM
Hybrid Meeting
Hal Minis, Chair, convened the Brewster Vision Planning Committee via remote participation with members: Sharon
Tennstedt, Vice Chair, Amanda Bebrin, Suzanne Kenney, Andi Genser, Patricia Hess and Alex Wentworth were present.
Fran Schofield was absent. A quorum was determined.
Also present: Jon Idman, Kari Hoffmann, Honey Pivirotto, Sharon Rooney and Ellen Murphy
The Chair read the Recording or Taping Notification: This meeting will be conducted by remote participation pursuant to
Chapter 20 of the Acts of 2021, 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.
To submit public comment or questions to the Vision Planning Committee, please email: brewplan@brewster-ma.gov.
Review and Approval of July 18th meeting minutes:
Sharon made a motion to approve the July 18th meeting minutes, Amanda seconded the motion, a roll call was
taken, and the July 18th meeting minutes were approved unanimously.
Review draft LCP by Tighe & Bond, including public comments on LCP overview & draft Action Plan
Hal informed the Committee that the focus of the meeting would be to review of the LCP including comments.
He highlighted the review process starting with a section-by-section review and discussion of the LCP. Each
Building Block team that was responsible for the section will provide their comments. Hal asked Sharon
Tennstedt and Ellen Murphy to document the changes for a final draft. Hal informed the Committee although a
timeline has been established, the Committee should take the time and ensure the LCP is complete. Hal
discussed the various types of comments received and suggested the Committee focus on the high-level
comments that may impact the document.
Section 1: Brewster’s Vision
Hal started with the overall format of the document and Brewster’s vision. Suzanne stated that we need to
attach an action item to the part of the vision that states Brewster is diverse. She questioned how Brewster
promotes diversity? The Committee discussed and decided to update the Vision statement. Kari read a
draft strategic plan goal related to diversity to help define some of the new language for the Vision
statement. Jon reminded the Committee that the LCP is a land-use plan and should be relatively high-level.
Jon will revise the Vision Statement for Committee review. Hal indicated there is an action under the
Community Character Building Block that references diversity. Andi suggested wording in the beginning of
the document that addresses the changes that have recently occurred through Covid and other events and
how the Committee will address these changes. Hal agreed that an introduction is key and should outline
what an LCP is and the interrelationships of the Building Blocks along with the conditions that shaped the
LCP. Hal will write the introduction for Committee review. Jon will also add the statement to section 1 that
was sent out for review in the meeting packet.
Section 2: Community Engagement for the LCP
Hal suggested updates to the section referencing the survey and the demographics. Sharon Rooney
suggested adding survey results regarding the Town Center. Hal summarized the survey results for the
Select Board, and he can use some of that language. Hal will send Sharon Rooney the write up he did for the
Select Board. Sharon Rooney asked if this was shared with the Cape Cod Commission (CCC) staff and if they
provided any comments. Sharon confirmed she shared the goals and the existing conditions but not the
Action plan. Ellen and Jon will ensure the CCC is sent a copy of the Action plan.
Page 2 of 3
Section 3: Existing Community Assets, Issues and Needs
Hal indicated that this section is basically summaries of the summary papers. Sharon Tennstedt asked if
more current data was available for the median single-family home. Amanda has data from July 2022 and
will follow up.
Community Character
Sharon Rooney is waiting for information from the Brewster Historic Commission, Patricia will follow up.
Sharon Tennstedt expressed a concern regarding the demographics, specifically the age data. She stated
that it varies depending on which age group the section is addressing. It was decided that Sharon will reach
out to the Town Clerk for the Town census data.
Open Space
Hal suggested moving the last sentence under Key Issues Moving Forward to Community Infrastructure. Jon
mentioned a public comment was received about adding an active recreation section in Open Space. Hal
informed the Committee that Community Infrastructure speaks to active recreation. Amanda suggested in
the Open Space a sentence referencing where active recreation resides in the document. Hal agreed and
suggested language and where in the document it should be placed. Sharon will update. Suzanne suggested
a glossary for many of the terms and acronyms. Sharon highlighted under Background it should be clarified
that the single highest scoring action was from the original Vision Plan survey in 2018. This will be rewritten
to provide clarity. Sharon Rooney suggested creating a graphic to show the interrelationship of the Building
Blocks, possibly in a table format.
Housing
No changes
Local Economy
Sharon Tennstedt will update the demographics.
Coastal Management
Jon commented the term retreat parking was a bit controversial according to the comments received. It
was suggested to remove the red line comment because it is already covered in the Action Plan.
Water Resources
Andi suggested adding language on the Brewster Conservation Trust with the Brewster Ponds Coalition to
protect water resources and remove the red line comment. Jon stated Brewster has town-wide pond
buffers and it should be stated in the document.
Governance
Sharon suggested adding the meetings with the Chamber of Commerce to this section. Amanda suggested
adding language to create a centralized data base linking all the separate data bases would be helpful.
Community Infrastructure
The language Jon provided on solar will be inserted. Hal suggested the re-paving improvement project for
Millstone Road reflect the design because it has not yet been built. Patricia suggested the carport solar
canopy over the golf course parking lots be plural because it covers more than one parking lot and should be
moved to Climate Mitigation and Adaptation. Kari suggested language be inserted for the proposed
consolidation of the Eddy and Stony Brook Elementary schools, stating three options were proposed and the
School Committee, as the deciding authority, will review each option for consideration.
Solid Waste
No changes
Climate Mitigation and Adaptation
The solar language Jon submitted will be add to this section. Jon will forward the word file to Sharon.
Section 4: Community Goals and Purposes
No changes at this time. After the review of the public comments for the Action Plan there may be updates.
Section 5:Strategies and Actions
The paragraph submitted by Hal will be inserted in this section.
Page 3 of 3
Hal asked the Committee if they had any comments on the overall document. He suggested an acronym and
abbreviation section in the beginning, and if possible, maps displayed in landscape layout with legends at the
bottom. The Committee agreed that the Goals, Purposes and Actions should be all together in the document,
followed by the Existing Conditions section.
Due to time constraints the Committee tabled the remaining discussion for the next meeting. The next meeting
was scheduled for Tuesday, September 6th due to the Labor Day holiday, however that day is Primary day, so the
Committee agreed to meeting on Monday, August 29th. Ellen will confirm the date with Town Administration
and notify the Committee. Jon, Hal, and Peter Lombardi will meet to discuss the overall timeline.
Update on Sea Camps Planning:
Amanda provided a brief update on the Bay Parcel stating the Committee is in the process of identifying a
consultant. Hal stated the Long Pond Committee is also participating in the consultant selection process and
creating a video to educate the public on the property. Meetings are scheduled for both Committees later in the
week.
Items for next agenda:
a)Completing the review of the LCP
b)Sharon Rooney will provide a sample of the hard copy LCP
Review Action Items from July 18th meeting:
The only outstanding item is the number of LCP hardcopies to print.
Next Meeting: Monday, August 29th Room A person to person for Committee members
Matters Not Reasonably Anticipated by the Chair:
Jon referred to the draft matrix/spreadsheet with LCP public comments and asked if there was any additional
information or format that would provide the Committee with a more comprehensible document to review.
The Committee agreed the format and content was helpful and didn’t need any updates. Suzanne asked if there
was a link or copies of the Town plans that are referenced in the LCP. Jon and Ellen will provide a list of the links
if they are available to the Committee. Hal thanked everyone for all their work and effort.
Amanda made a motion to adjourn the meeting, Suzanne seconded the motion, the meeting was unanimously
adjourned at 5:38 pm.
LCP Memo to VPC 08/25/22 Page 1
Town of Brewster
2198 Main Street
Brewster, MA 02631-1898
Phone: (508) 896-3701
Fax: (508) 896-8089
MEMORANDUM
TO: Vision Planning Committee
FROM: Jon Idman, Town Planner
RE: LCP Recommendations- Review of Public Comments
DATE: August 25, 2022
As discussed at the Committee meeting on 8/15, I’ve prepared and provided under separate cover draft
revisions to the LCP Vision for further review consistent with the Committee’s direction provided at its
meeting on 8/15.
The Committee also discussed at that meeting creating a glossary/ acronym list and an executive
summary to include in the LCP, which have yet to be drafted.
The Committee has discussed including the comments received on the LCP (perhaps including the earlier
Vision Plan survey results) as an appendix to the LCP, which I support.
After having reviewed the public comments received on the draft LCP, the following are my
recommendations about additional matters or revisions the Committee might consider with respect to the
Action Plan.
Comments or matters I have not recommended for further consideration were ones I felt were:
too specific for a high-level land use plan;
not pressing or essential to advancing the Building Block’s accompanying purpose or goal,
especially given the number of actions proposed;
infeasible to implement;
better considered during plan implementation;
conclusory statements of opinion that really didn’t call for potential revisions;
not germane to the LCP as a land use plan; or
ones too subjective and not fairly representative of the full spectrum of comments and opinions
received throughout the entire comprehensive planning process.
Action Plan
Community Infrastructure
Purpose 2, Action CI6: Should potential CCRT link to Linnell Landing be expressly referenced?
Purpose 3: Proposed new action: “Evaluate with public utilities and other stakeholders the
feasibility of burying overhead infrastructure.” [Note: proposed action would also advance
Community Character, Local Economy, Coastal Mgmt. and Climate Mitigation & Adaptation
goals and purposes].
Purpose 3: Proposed new action: “Investigate potential public management structures and entities
to oversee innovative alternative septic system inspections, maintenance and operations.”
Office of:
Planning Board
Planning Dept.
LCP Memo to VPC 08/25/22 Page 2
Governance
Purpose 2, proposed new action: “Continue to partner with community-based organizations on
matters of public importance.”
Purpose 3, revise action GO9: “Develop a ‘How to Do Business Guide’ for homeowners to
explain permitting processes.”
Water Resources
Purpose 1, proposed new action: “Continue to educate the public about water conservation
practices and programs.”
Coastal Management
Revise Goal: “In the context of coastal change, preserve and protect Brewster’s coastal resources,
expand public access, and minimize the vulnerabilities from coastal hazards due to climate
change.”
Purpose 3, revise Action CM9: “Explore regulatory options to facilitate or encourage for
managed retreat from high-risk coastal areas.”
Housing
Purpose 2, revise action HO11: “Evaluate the acquisition of land by the Town for housing,
including for joint purposes such as open space uses.”
Purpose 3, proposed new action: “Consider adopting policies, regulations or programs to govern
or document Short Term Rental operations.”
Purpose 3, proposed new action: “Consider proposed regulatory amendments to allow for and
support employee housing.” [Note- this would also advance Community Character and Local
Economy goals].
Purpose 3, revise action HO15: include reference to neighbor networks and support services.
Water Resources
Purpose 1, revise action WR3: “Evaluate other actions to protect drinking water from the impacts
of other land uses, including testing for PFAS and contaminants of emerging concern.”
Local Economy
Revise Goal: “Promote a sustainable economy that builds on Brewster’s natural and human
assets, addresses the needs of small businesses, and provides year-round employment
opportunities, including for Brewster’s young families.”
Purpose 1, action LE4, delete or revise to clarify meaning: “Consider the impact of Town
facilities in anchoring community activity centers in making capital investment decisions.”
Community Character
Purpose 1, revise action CC1: include reference to library services and programs as well
Executive Summary
Section 1. Introduction
What is an LCP? Why have one?
Brewster’s Local Comprehensive Plan (LCP)describes how Brewster looks today and where it wants to
go in the future. The LCP is not law or regulation, and does not itself create regulatory mandates or
restrictions. It creates policy direction to help guide land use decisions and policies in the Town for
the next 5 to 10 year planning period. It has been developed with general guidance from the Cape Cod
Commission, adapted to Brewster’s specific needs and circumstances.
After its local adoption, the Cape Cod Commission also reviews an LCP to ensure that it is consistent
with and not contrary to regional planning policies or other towns’ interests. Brewster’s LCP has also
been prepared and is intended to serve as a comprehensive land use plan under state planning law
(MGL Chapter 41, Section 81D).
Brewster first adopted a comprehensive land use plan in 1970. A prior draft LCP was completed in
1997 but was never brought to Town Meeting. The development of this LCP, however, started in
earnest with the 2018 Brewster Vision Plan. The Vision Plan, which process commenced in 2016,
serves as a foundation for the LCP and includes goals and actions for eight key issue areas (called
‘building blocks’).
The LCP is structured along the same lines as the Vision Plan. It includes a Vision Statement and the
eight building blocks: Community Character, Water Resources, Open space, Housing, Coastal
Management, Local Economy, Governance, and Community Infrastructure. The goals for each of
these building blocks remain similar to those stated in the Vision Plan, with some slight modifications to
recognize changing conditions in Brewster and beyond, and the goal statements and policies in the
Cape Cod Regional Policy Plan.
In addition, two new building blocks have been included in the LCP since the adoption of the Vision
Plan: Climate Mitigation and Adaptation and Solid Waste Management. The Climate Mitigation and
Adaptation building block recognizes the major threat to the community posed by climate change and
the efforts by the Town to mitigate or adapt to its effects. The Solid Waste building block recognizes
both the Town’s efforts to decrease and manage the community’s waste stream and regional guidance
from the Cape Cod Commission.
The heart of the LCP is the Action Plan, which includes an ambitious list of strategies and actions
associated with the building blocks. The Action Plan sets out these proposed actions and strategies to
advance the vision and identified goals and purposes of the LCP. The Action Plan calls for Town
government to accomplish a variety of tasks over the next 5-10 years; more broadly, the Plan is also
intended to guide future decision-making and action involving community organizations and residents.
Section 2.
Brewster’s Planning Vision
The LCP is informed, but not limited by, the 2018 Vision Plan. In many ways, both Plans exist along the
same planning continuum, though the LCP has been updated to reflect changed conditions and input
received through the entire planning process. The LCP includes a vision statement, similar to the 2018
Vision Plan’s, articulating at a high level a vision for Brewster’s future and the values held by the
community. The Action Plan relates back to and is intended to advance the vision. It is important to
note that these values are not intended to conflict, especially in terms of implementing the related
Action Plan, but are intended to by complementary, mutually supportive and on equal footing with one
1
another. The vision statement has also been prepared for consistency with the Cape Cod Regional
Policy Plan.
Section 3.
Community Engagement
Processes for developing both the Vision Plan and the Local Comprehensive Plan were highly
participatory. The Vision Planning process included three series of public workshops and a public
survey. These events were accompanied by broad public outreach, including newspaper coverage
and opinion pieces, postings on the Town website and through the Town email-list, distribution of
announcements through the e-mail lists of approximately 10 local not-for-profit organizations and
church groups, local public television interviews and announcements, and document distribution at
Town Hall, the Brewster Ladies Library, and the Council on Aging. A postcard to all property owners
was also sent out for the public survey.
The LCP process and its preparation has been shepherded by the Vision Planning Committee. The LCP
planning effort began during the Covid pandemic, thus was constrained by restrictions on public
meetings. Nevertheless, the Planning Committee used many of the same outreach efforts to inform
the Brewster public about the planning effort and to solicit their ideas and feedback. Most notable
was the public survey to gauge support for over 65 proposed actions, to which over 2,300 people,
broadly representing the community’s demographic profile, responded. The Committee used broad
print and electronic media announcements, email lists, postcards to property owners, and pop-up
events at Town locations to publicize the survey. A summary of results is available on the Town
website at https://www.brewster-ma.gov/committees-mainmenu-29/brewster-vision-planning-
committee
In addition, the Committee partnered with the Town Administration to organize workshops of Town
staff and key local organizations to review and comment on a draft Action Plan. The Committee
announced a public comment period on the LCP, including the draft Action Plan, in July 2022. The
completed draft LCP underwent hearing and review for Selectboard and Planning Board endorsement,
Town Meeting for approval and adoption, and further public hearing by the Cape Cod Commission to
certify regional plan consistency.
Written comments received, and vision survey results, have been included as an appendix to the LCP.
Section 4.
Existing Conditions: Who are we in Brewster? What is Brewster?
The existing conditions for each of the building blocks are described in summary. The existing
conditions detail circumstances in the town and identify town assets, strengths, concerns and related
challenges and opportunities. The genesis of these summaries are in papers originally prepared for
the Vision planning process in 2017. The LCP summaries have been updated to reflect changing
conditions, evolving issues, and implementation of actions to date. . Interpretive maps are also
contained throughout to depict certain concepts or conditions.
Section 5.
Building Blocks: The Foundation for the LCP
The Action Plan: How we achieve our planning vision and goals
The goals and purposes for the LCP are organized by building blocks, a concept originated in the
2018 Vision Plan. They have been slightly modified in the LCP since the development of the Vision
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Plan to reflect changing conditions in Brewster and to align them with the goals of the Cape Cod
Regional Policy Plan.
The Action Plan is proposed to advance the LCP vision, goals and purposes over the next 5 to 10
years. The list of actions is not intended to be a complete list of all that the Town could do but does
include the most important actions essential to advancing the identified goals. While a large and
ambitious number of actions are presented, priorities for implementation will be identified during the
Select Board’s annual strategic planning exercise.
The list of actions has been drawn from numerous sources including the following:
●Actions from the Vision Plan that have not yet been implemented;
●Recommendations from stakeholders about current needs;
●Recommendations from the Vision Plan summary papers about trends and needs; and
●Results of the public survey gauging public support for individual actions.
As the final phase of draft Action Plan development, the draft list of actions was reviewed and refined
by workshops of key Town departments and local organizations to assess the accuracy, relevancy, and
feasibility in implementing each action. This vital part of the process helped ensure the ability, capacity
and commitment to implement the Action Plan is subject to future adjustments that will make the LCP
a “living” plan.
Section 6.
Capital Facilities Planning: How to fund our planning actions
In this section the LCP will align, and cross-reference capital investments contemplated in the action
plan with the Town’s on-going capital facilities planning. This analysis ensures that the capital
requirements necessary to implement the LCP are planned for and met.
Section 7.
Community Housing Planning
The Town has recently completed, and the state has approved, an up-date of its 2017 Housing
Production Plan (HPP), which principally deals with provisions for affordable housing in Brewster. This
section will include a summary of that plan. The full HPP can be accessed on the Town website at
https://www.brewster-ma.gov
Section 8.
Other Brewster Plans and Policies
The LCP references other existing Town land use plans, policies, laws and regulations that both inform
and will be informed by the LCP. Many of the LCP’s strategies and actions deal with potentially
updating and amending these documents to advance the goals and vision of the LCP. It is of note that
under the current zoning bylaw, consistency with the comprehensive plan is a criterion of approval for
certain permits and proposed developments.
Section 9.
LCP Implementation/ Performance Monitoring
The prioritization of undertaking LCP actions and strategies will primarily be set through the Select
Board’s annual strategic planning. Monitoring and reporting to the community are crucial to the
successful implementation of the Plan and are described in this section.
Brewster’s Vision
The LCP’s vision for Brewster’s future, as articulated below, is grounded in the town’s Vision Planning
process, which began in 2017. The Vision Plan, completed in 2018, serves as a foundation for the LCP.
The LCP’s vision statement is also informed by the shared experiences of the community since that time
including, among other things, an unprecedented world-wide pandemic and its associated social, political
and economic effects.
This vision statement is a product of significant community input: it reflects the shared values of the
Brewster community related to, among other things, future growth and development and resource
protection in the town. The vision also harmonizes with the regional vision articulated in the Cape Cod
Regional Policy Plan. In particular, the town’s visioning process involved “town center” discussions:
identifying existing centers of concentrated activity, development and infrastructure in the town that
might accommodate expanded future housing and economic opportunities.
This vision serves as the backdrop and reference point for the ‘Building Blocks’ and their associated
goals, purposes and actions set out in the LCP. The values articulated in the vision statement are
mutually dependent, complementary and on equal footing with one another. In practical application, the
vision requires that these values be reconciled or compromised with one another. Should the town fail to
advance any one value identified, then all others fail to advance and the vision remains unfulfilled.
Brewster is a welcoming community that celebrates our special character and strives for greater
social diversity and inclusiveness.
We preserve our historical setting and seek to protect its contribution to our town’s character. We
work to preserve the rural, small town feel of Brewster while recognizing opportunities for growth,
which adds to our shared quality of life.
Brewster has been and will continue to be a leader in open space planning and protection, which
contributes to protecting water resources and sensitive natural habitats and provides scenic areas for
recreation and contemplation.
In the context of coastal change, we protect our natural bayside coastline, which defines our sense of
place and provides special recreational and economic opportunities.
We honor our history as a working community and partner with Brewster businesses and other
organizations that support residents and visitors by providing high-quality products, services, and
experiences built on our character and environment, and that offer local social, economic and
employment opportunities that help sustain the community.
We support growth that is appropriately scaled and sited within the context that it is proposed. As a
commitment to the social diversity we value, we seek to support housing production tailored to the
changing needs of the community, including housing that is affordable to current and future residents
of all ages and economic standing.
Within our fiscal capabilities, we strive to provide the infrastructure necessary to ensure public
health and safety and to support the ability of our entire community t - from older people to families
with children - to live, work, learn, recreate and gather in the town.
The communication methods and practices that we set in place encourage and promote public
discourse and collaboration. We look to successful models in other communities and organizations
as examples to manage and guide our approach to change in our Town.
We are committed as we move forward, through careful planning and coordination, to improve our
community and honor what we value about Brewster, and ensure the town’s continued social,
economic and environmental sustainability for present and future generations.
Table of Contents
Executive Summary
Section 1 Introduction
Section 2 Brewster’s Vision
Section 32 Community Engagement in the LCP
• Public Engagement
• Cape Cod Commission Involvement
Section 43 Existing Community Assets, Issues, and Needs
• Brewster Today
• Community Character
• Open Space
• Housing
• Local Economy
• Coastal Management
• Water Resources
• Governance
• Community Infrastructure
• Solid Waste Management
• Climate Mitigation and Adaptation
Section 54 Community Goals, and Purposes, and Actions
• Community Character
• Open Space
• Housing
• Local Economy
• Coastal Management
• Water Resources
• Governance
• Community Infrastructure
• Solid Waste Management
• Climate Mitigation and Adaptation
Section 5 Strategies and Actions
Section 6 Capital Facilities Plan
Section 7 Housing Production Plan Summary
Section 8 Supporting Plans and Policies
Section 9 Performance Monitoring
Appendices
• Comparison of RPP/LCP Goals Spreadsheet
• Public Comments and Surveys
• Glossary/ Acronyms?
EXECUTIVE SUMMARY
Commented [JI1]: Are an Intro and Exec Summary both
necessary?
1
SECTION 1
Introduction
SECTION 2
Brewster’s Vision
The vision for Brewster’s future was crafted as part of the 2018 Vision Planning process and was updated to reflect changes
and experiences since that time. completed in 2018.
Brewster is a welcoming and inclusive community that celebrates our diversity and special character and strives for
diversity. We preserve our historical setting and seek to protect its contribution to our town’s character. We work to
preserve the rural, small town feel of Brewster that was created by low density development and open space, which
contributes to protecting water resources and providing scenic areas for recreation and contemplation. In the context
of coastal change, we protect our bayside coastline, which defines our sense of place and provides special recreational
and economic opportunities.
We honor our history as a working community and partner with Brewster businesses that support residents and visitors
by providing unique, high-quality products, services, and experiences built on our unique character and environment.
We support growth that is appropriately scaled and sited. We seek to offer housing that is affordable to residents of all
ages and economic standing. We strive to provide the infrastructure necessary to ensure that all residentscitizens -
particularly older adultselders and families with children - are safe, healthy, and supported, so they can work, learn,
participate, and give back to the community.
The methods and practices that we set in place encourage and promote public discourse and collaboration. We look to
successful models in other communities and organizations as examples to manage and guide our approach to change
in our Ttown.
We are committed as we move forward, through careful planning and coordination, to improve our community and
protect what we value about Brewster.
Commented [ST2]: Hal to write
Commented [SR3]: Update to address pandemic, more
emphasis on diversity, strive to be more diverse; look to
balance housing, economic opportunities; also include Jon’s
language to reflect Placetypes
Commented [ST4]: Amanda has revisions
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[Note: The LCP regulations require that the LCP address how the town’s vision and growth policy aligns with the RPP vision
and growth policy. The RPP Vision and Growth Policy is the following:
The vision for the future of Cape Cod is a region of vibrant, sustainable, and healthy communities, and protected natural and
cultural resources. To advance this regional vision, the 2018 RPP includes a description of eight Placetypes, including
identified Community Activity Centers, Industrial Activity Centers, and Natural Areas. The Commission will focus efforts to
support vibrant downtowns and village centers by helping to plan for housing and economic opportunities to meet regional
needs in the Community Activity Centers, and the Industrial Activity Centers will be targeted areas for future growth in existing
and emerging industries. The Natural Areas will be the focus of the Commission’s efforts to protect vulnerable resources and
improve the Cape’s resilience to severe storms and the effects of climate change.
The Growth Policy for Barnstable County is that growth should be focused in centers of activity and areas supported by
adequate infrastructure and guided away from areas that must be protected for ecological, historical or other reasons.
Development should be responsive to context allowing for the restoration, preservation and protection of the Cape’s unique
resources while promoting economic and community resilience.
Recommendation: The Brewster vision statement should incorporate a brief paragraph on how the LCP’s vision is consistent
with the regional vision and growth policy, such as: sensitive resource areas such as wellhead protection areas, etc. are not
planned for growth, and that growth will directed to areas with adequate infrastructure. Also include a brief statement about
how Placetypes were considered. This can be addressed by referring to the Town Centers map and survey input received;
resource protection can be addressed by referring to the Natural Resources map that incorporates the Natural Areas
Placetype and various actions included in the LCP]
Commented [ST5]: Jon to write
3
SECTION 2
Community Engagement in the LCP
Public Engagement
Processes for developing both the Vision Plan and the LCP were highly participatory. The 2018 Vision Planning process
included three series of public workshops and a public survey. These events were accompanied by broad public outreach,
including newspaper coverage and opinion pieces, postings on the Town website and through the Town email-list, distribution
of announcements through the e-mail lists of approximately 10 local not-for-profit organizations and church groups, local
public television interviews and announcements, and document distribution at Town Hall, the Brewster Ladies Library, and the
Council on Aging. A post card to all property owners was also sent out for the public survey.
The LCP planning effort began during the COVID pandemic, thus was constrained by restrictions on public meetings.
Nevertheless, the Planning Committee used many of the same outreach efforts to inform the Brewster public about the
planning effort and to solicit their ideas and feedback. Most notable was the public survey to gauge support for over 65
proposed actions, to which over 2,300 people, broadly representing the community’s age demographic and residential status
profile, responded. The Committee used broad print and electronic media announcements, email lists, post cards to property
owners, and pop-up events at Town locations to publicize the survey. A summary of results is available on the Town website at
https://www.brewster-ma.gov/files/nextsteps.pdf
(insert url). The survey results were fundamental to drafting the Actions in Section 5. This Action Plan was made available to
the public during a 21-day public comment period from July 25 to August 12, 2022. Comments and feedback were reviewed
carefully by the Vision Planning Committee and revisions made as appropriate. A Public Hearing was held on <DATE> during
a joint meeting of Brewster’s Select Board and Planning Committee.
The LCPs vision statement is a product of significant community input: it reflects the shared values of the Brewster
community related to, among other things, future growth and development and resource protection in the town. The
town’s vision statement also harmonizes with the regional vision articulated in the Cape Cod Regional Policy Plan. In
particular, the town’s visioning process involved “town center” discussions: identifying existing centers of concentrated
activity, development and infrastructure in the town, outside of large, unfragmented, natural resource corridors, that might
accommodate expanded future housing and economic opportunities.
Commented [ST6]: Include a statement of actions taken as
a result of the hearing
4
The 2022 community survey (Brewster’s Next Steps) queried residents about where they thought a Town Center is or should
be located. While 20% of survey respondents preferred no designated Town Center, the majority (44%) of respondents
identified the area around Foster Square as a Town Center (see Figure 1 below). Other frequently mentioned designations
included the broader areas along Main Street from Rte 124 near the Brewster General Store to Ellis Landing Road (25%) and
Main Street from Underpass Road to Ocean Edge Resort (23%). In a Town Center, respondents prefer sidewalks, bike
lanes/paths, small parks, and small scale commercial development. There was strong support for development controls such
as compatible historic or architectural design, height limitations and landscaping, which are consistent with maintaining
Brewster’s small town and historic character. Accordingly, support for housing, including mixed-use and retail, was moderate.
Overall, there was widespread concern about increasing traffic on Main Street, including impeding access from residential side
streets. Preference for locating commercial and industrial development on Underpass Road or Freeman’s Way was frequently
mentioned in respondent comments.
Sharon R to add a pie chart here.
[Note: insert any graphics/pie charts from survey if desired]
[add brief discussion about results from survey focused on Town Centers]
5
This page intentionally left blank
6
[Brewster LCP Potential Town Centers – Panel 1]
7
[Brewster LCP Potential Town Centers – Panel 2]
8
[insert photo of flyer prepared for 2021 survey]
In addition, the Committee partnered with the Town Administration to organize workshops of Town staff and key local
organizations to review and comment on the proposed Action Plan included in Section 5.
Cape Cod Commission Staff Participation
CCC Staff completed a review of the LCP’s goals for consistency with RPP goals and provided feedback to the Planning
Committee on ways to align the LCP’s goals with RPP goals. A comparison table of RPP goals and LCP goals was prepared to
assist CCC Staff in this review. This comparison chart is included in Appendix __. CCC Staff also provided input and guidance
to Tighe & Bond during preparation of the draft LCP on compliance with the LCP Regulations.
CCC Staff gave a presentation on the Cape Cod Climate Action Plan at a meeting of the Planning Committee in August 2021.
CCC Staff also completed a review of existing conditions summaries and provided suggestions on additional content. These
recommendations were reviewed by the Planning Committee and incorporated into the LCP as appropriate [these proposed
revisions are in red text in the existing conditions section].
CCC Staff reviewed the draft Goals, Purposes and Actions during the public comment period in July – August 2022.
9
SECTION 3
EXISTING COMMUNITY ASSETS, ISSUES, AND NEEDS
Brewster Today
Introduction
The Town of Brewster is characterized by its small town, rural and historic qualities, with an abundance of natural resources,
protected open space and miles of both coastal and freshwater shoreline. The majority of developed land within the Town
consists of single-family, residential development and small-scale commercial development concentrated along Route 6A, a
nationally designated scenic byway and largest historic district in the U.S. Additional small-scale commercial areas are located
on Underpass Road, and at the Route 137/Millstone Road intersection. The Town also includes an approximately 245-acre
industrial district in the southeastern section of Town.
The Town has been committed to the protection of its valuable natural resources for decades. According to the 2020 Draft
Brewster Open Space and Recreation Plan, the town includes within its boundaries over 2,200 acres of large State and non-
profit open space and recreational holdings, such as Nickerson State Park, State acquired Camp Monomoy land, Brewster
Conservation Trust lands, Orenda Wildlife Trust, and the Rail Trail. In addition, about 80 freshwater ponds cover some 1,700
acres. The Town has largely retained its small-town character through its efforts to protect open space and historic resources.
Historic Development Patterns
Since 1633, Brewster has been home for small business entrepreneurs since the opening of the first grist mill on what is now
Stony Brook. Relying on the land and sea, business has always supported the natural setting and rural nature of the Town.
Perhaps the most notable of Brewster’s entrepreneurs were the sea captains. From the 18th to 19th centuries, as many as fifty
sea captains lived in Brewster, building stately homes along Route 6A, adding a sense of elegance to the community. Today,
many of these sea captains’ homes are still occupied by entrepreneurs. Business continues to support the small-town setting
of Brewster by creating services for residents and visitors and at the same time maintaining many important historic buildings
and the natural surroundings.
Current Land Use Patterns
A Mass Audubon study, “Losing Ground”, in 2014 calculated that 29% of Brewster was protected open space, 29% was
developed, and 42% remained, developable but undeveloped.
10
As stated in the 2017 Brewster Housing Production plan, nearly 76% of the housing stock in
Brewster is the form of single-family homes. Mixed-use development is not currently allowed
under the Brewster zoning bylaw though development in commercial districts are allowed an
with accessory residential unituses allowed by special permitin commercial zoning districts.
Cluster residential development andor planned residential development (PRD) are is only
permitted allowed by special use permit and eligibility is limited to significant minimum land area
requirements granted by the Planning Board.
There are also 145 properties along Route 6A where business activity is taking place. Most of
these businesses are in the Residential (R-M) zoning district.
Zoning
district
Total
acres
Percent
of total
CH 288 2%
I 247 2%
MRD 50 0%
RL 2,091 13%
RM 5,652 35%
RR 7,909 48%
VB 93 1%
Total 16,328 100%
Commented [JI7]: Confirm re 2022 HPP Update
11
[Figure # - Land Use]
12
Recent Trends
A December 2021 Elementary Schools Master Plan completed for the Town of Brewster indicate that the seasonal population
in Brewster, when averaged over a full year, is nearly double the number of full-time residents. The increase in seasonal
population places stress not only on the Town’s natural resources and recreation facilities, but also on its infrastructure.
Based on 2019 American Community Survey data of housing market trends compiled by the Cape Cod Commission, the
median value for a single-family home in Brewster in 2019 was $442,000, while the median sales price in July 2022 was
$711,000 for single-family homes and $455,500 for condominiums (Cape Cod and Islands Association of Realtors- CCIOAR).
December 2021 was $750,000. The income needed to affordably own a home is $110,169/year compared to the median
Cape household income of $75,321. As of July 2022December 2021, there is an inventory of only 156 single-family homes
and 2 condominiums for sale in Town (CCIOAR). The Census Bureau classifies nearly 44% of all housing units in Brewster as
vacant most of the year and held for seasonal or recreational use.
Today, there are 15 lodging businesses and one resort on Route 6A in Brewster, with all but one in residential zones. In
addition, there are 18 eating establishments on Route 6A in Brewster, with 75% in residential zones. Numerous other existing
businesses are located on Route 6A. Expansion or change to these businesses require a special permit from the Zoning Board
of Appeals.
Recent Actions by the Town
The Town has adopted strict regulations to protect public drinking water supplies, manage land use and preserve open space
within the Town by managing land use within Brewster’s Zone IIs (drinking water supply areas in East and West Brewster) and
Pleasant Bay and Herring River watersheds.
In 2021, the Town purchased a total of 121 acres of Cape Cod Sea Camps property, including a 66-acre parcel abutting Long
Pond and 55-acre BayCape Cod Sea Camps parcelroperty that stretches from Main Street (Route 6A) north to Cape Cod
Bay. Acquisition for public use is aligned with community priorities identified in this LCP and resident feedback from other
recent strategic planning initiatives. Detailed comprehensivemaster plans for each property will be developed and brought to
a future Town Meeting for subsequent voter approval.
[insert photo of Sea Camps property]
Key Issues Moving Forward
The Town has implemented specific land use controls and protected open space to minimize the impacts of future
development on natural resources and protect the character of the community. The LCP also recognizes the need to evaluate
policies and zoning bylaws that would support more housing choice. The 2022 LCP outreach survey included questions on
Commented [ST8]: This can be updated from monthly
reports if TM vote is in the spring..
13
potential locations for creation of town center(s) in Brewster. Consideration of appropriate locations for mixed-use and/or
additional residential density will be needed in order to meet the Town’s future housing needs while continuing to meet other
community goals of protecting water quality, natural resources, and community character.
The Brewster Chamber of Commerce has cited the need for the Town to support and design vibrant and diverse business and
cultural centers and that offer more walkable, mixed-use options with affordable living units. However, a change in zoning or
an overlay district would be required for mixed-use or to streamline local permitting for expansion or substantial change to
businesses along Route 6A.
14
Section 4
Community Goals and Purposes
This Plan contains a broad array of goals , purposes and actions to achieve th e community’s visionose
goals. While the Building Blocks
are presented separately, the Town recognizes that they are, in fact, highly interrelated and should
not be treated in a stove-pipe manner. Action in one Building Block will help advance the goals of other
Building Blocks. At the same time, given the breadth of Brewster’s goals and the large number of actions
to achieve them, there will be inevitable tensions or conflicts between actions. It will be the responsibility of
the Select Board and other commissions and committees to strike the necessary balance to resolve those
tensions and achieve the community’s vision for the future.
Community Character
Background
The Community Character Building Block encompasses both Brewster’s physical and social character. Community character
is closely inter-related to several other Vision Building Blocks including Open Space, Local Economy, Housing, and
Community Infrastructure. Positive actions on those Building Blocks will also have a positive impact on Community Character.
Physical Character
Brewster has a large collection of significant historic properties, with the great majority located
along Route 6A and Stony Brook Road. The town has two large National Register Historic
Districts: one includes historic buildings along Route 6A and Lower Road, roughly from Paine’s
Creek to Sea Pines Drive; the other includes structures along Stony Brook Road in the vicinity of
the Grist Mill. Most of Brewster’s historic resources are within the Old Kings Highway Historic
District, which also includes properties along the town’s old roadways including Route 6A,
Lower Road, Stony Brook Road, as well as Satucket Road, Route 137/Long Pond Road, Tubman
15
Road and several smaller connecting roads. The Old Kings Highway Historic District Committee
has authority to review and approve all exterior alterations and demolition proposals.
In the early 1900’s, as automobile ownership grew, summer tourism became a major economic
force and residential construction consisted mostly of summer cottages and summer cottage
communities such as Brewster Park, Pineland Park and Ellis Landing Colony. These cottages are
now 75-100 years old and some are considered of historic value.
The Brewster Historical Commission continues to work with a preservation consultant to
document the architecture and history of significant houses older than 75 years.
The four small Village Business zones are located along Route 6A near Betty’s Curve, Underpass
Road, Villages Drive, and at the Orleans town line. The larger Commercial zone is centered
along Underpass Road. Many of the town’s distinctive antique shops, inns, galleries and other
small businesses along Route 6A are outside of the commercial zones and operate as home
occupations within residentially zoned areas.
Brewster has a large collection of significant historic properties, with the great majority located along Route 6A and Stony
Brook Road. Most of Brewster’s historic resources are within the Old Kings Highway Historic District. [Waiting for response
from Brewster Historic Commission re: current historic inventory work being conducted with consultant assistance]. Four small
Village Business zones are also located along Route 6A with a larger Commercial zone centered along Underpass Road.
Many of the Town’s distinctive antique shops, inns, galleries, and other small businesses along Route 6A are outside of the
commercial zones and operate as home occupations within residentially zoned areas.
16
[Figure 4 – Historic Resources]
17
All Village Business areas and home occupationsconstruction along Route 6A requires review by the Old Kings Highway
Historic District Committee. Much of tThe Commercial district on Underpass Road is outside the historic district andbut is
instead primarily governed by Planning Board Site Plan Review and as applicable, special permit review. Certain uses such as
multi-family residentialdwellings, outdoor commercial, and hotel/motelaccommodations uses are allowed only in the
Commercial district by sSpecial pPermit, which requires specific development criteria to be met. Restaurants and drive-
through banks are allowed by Special Permit in both the Village Business and the Commercial districts.
The Town has well-developed Site Plan Review standards dealing with, among other things, site design, transportation and
access issues for commercial, multi-family and industrial uses. While the Town’s current dimensional regulations praxctically
limits building size and scale on most small to medium size lots, they still allow larger buildings on larger lots.
The Town has walkable clusters of commercial development in each of the Village Business zones, but no focused Town
center or downtown. The Town’s institutions are located along Route 6A—the Library, Senior Center, Town Hall, and the Eddy
Elementary School.
Formula retail businesses are expanding in many communities on the Cape, submitting proposals to expand existing
structures or rebuild. In Brewster, Cumberland Farms submitted an application to significantly increase building size and
expand the range of products they offer. After considerable public debate, the expansion was approved in 2017, but with
fewer gas pumps than originally proposed.
The Brewster Vision workshops identified the preservation of community character as an important issue, with responses like
‘small Town feel,’ ‘historic charm,’ ‘scenic Route 6A,’ and the landmark ‘Grist Mill herring run’ appearing in 36% of comments
about Town “Treasures.” Community Character also played a major role in comments relating to the vision for Brewster’s
future. While community character was primarily interpreted to mean the physical fabric of the community—its buildings,
landscapes, and neighborhoods—workshop participants also acknowledged the Town’s diverse residents, social challenges,
and a desire to be more connected with each other as part of the social character.
Social Character
Brewster’s population is changing in ways that are similar to the Cape in general. The 2020 US Census showed that
Brewster’s population has increased by 5% over the past 10 years. The population of residents over 65 is projected to grow
from 42% of the population in 2020 to 53% in 2030. The 2022 annual Town census (Town Clerk, 8/15/2022) indicates that the
65+ population has increased to 43% of the population. Brewster’s high-quality schools are an important factor in attracting
young families with diverse backgrounds. This younger population (i.e., age 25-49), many with school age children, currently
18
accounts for 4722% of the Town’s population (2022 Town census), already lower than theand is projected to decrease to 38%
in 2030 (2020 US Census). The number of school age children 5-19 wasis also projected to fall from 11% in 2020 to 9% of the
population in 2030, but has already decreased to 8% in 2022 (2022 Town census).
Housing is critical to support a diverse population, and the Town has been proactive in pursuing affordable housing to address
both the needs of older residents as well as focusing on attracting young families, including amendments to the accessory
dwelling by-laws to allow greater opportunities for year-round rental options and home ownership. Brewster is also pursuing
several projects to expand affordable single-family homes, rental units, and housing for older adultsseniors.
Seasonal workers come from a variety of countries and add to the vibrancy of the Town. The Town continues to work to find
housing for the seasonal workforce, with consideration being given to structures on the Bay property for this purpose. The
Town also provides a variety of social services to families and individuals in distress. Most of these services are provided
through not-for-profit service organizations.
Recent Actions by the Town
Physical Character
As noted in the Open Space and Water Resources summariesections, the Town has had a long-standing commitment to
purchase open space for its inherent value as well as to protect the Town’s drinking water and surface water quality. In 2021
the citizens of Brewster overwhelmingly voted to purchase the Sea Camps properties of over 100 acres. The Town is now
working with citizens to determine how best to use both parcels.
Social Character
A 2016 Brewster Council on Aging needs assessment found that the typical older adult wants to stay in Brewster and is
aging with sufficient resources and social support. However, there are segments of this population that struggle to age in
place. Transportation, caregiving services, and health and wellness programs were seen as priorities. Most older adults
think that the current COA building is inadequate for community needs and supported the creation of a multi-generational
community center. This finding mirrors many statements in the Brewster Vision workshops about the value of a multi-
generational community center to meet the needs of Brewster’s diverse population and a place that would bring all age
groups together.
Key Issues Moving Forward
Commented [ST9]: A needs assessment will be conducted
in January so we can update this section if TM vote delayed. I
don’t expect big changes so at least the date of the
assessment will be more current.
19
As noted in the sSummariesy Papers for Community Infrastructure and Local Economy, there are several areas of
potential development in Town where maintaining community character is a key issue, including a Town Center or activity
centers along Route 6A, the Sea Camps properties, Drummer Boy Park, and a community center. Important to these and
all planning considerations, as well as changes in zoning bylaws and regulations, is maintaining Brewster’s historic and
rural character. Site Plan Review standards could be evaluated to provide enhanced landscaping, architecture and
building design. Special Permit criteria could be enhanced to address pre-existing non-conforming uses and structures
that seek to alter or expand.
Commented [ST10]: Do we want to keep referring to these
properties as the Sea Camps? Or Bay property?
Commented [ST11]: Or ‘can’ or ‘will’?
Commented [ST12]: Same comment
20
[Figure # - Priority Natural Resource Areas]
21
Open Space
Background
Open space figured prominently in the first Vision workshops in 2017. As a treasure, participants valued protected open space
because of its contribution to Brewster’s rural character, low density, tranquility, protection for the Town’s drinking water
supply, recreation and preservation of natural habitat. Participants also noted the value of open space-based recreation
including specific locations such as bike trails, Nickerson State Park, the Punkhorn Parklands, Brewster tidal flats, and the
Captains’ Golf Course. Acquiring land for recreation and habitat protection and improving the use of Drummer Boy Park were
noted as significant opportunities. Finally,open space was the second most mentioned theme in participants’ vision
statements, with specific references to natural beauty, rural character, environmental responsibility, and a “green” community.
The community survey also reinforced the importance of open space in Brewster. The single highest scoring action in the
2018 Vision Plan survey was “Identify and protect priority parcels in sensitive natural resources areas, particularly in
designated drinking water supply areas”. Similarly in the 2022 Vision Planning Next Steps survey, acquiring land to protect
drinking water supply and critical habitat rated among the top scoring actions. Land protection in drinking water supply areas
(Zone IIs) has become a major criteria for land acquisition for both the Town of Brewster and Brewster Conservation Trust land
acquisition projects.
Open space is closely linked to many other Vision building blocks including Town character, the local economy, water
resource protection, and community infrastructure.
In addition to the contributions to the Town’s character and recreational opportunities, open space contributes in many ways
economically and financially to the Town. Forested open space also acts as a carbon sink by capturing and sequestering
carbon emissions. In contrast to other Cape Towns, Brewster’s past open space investments have, in part, allowed the Town
to avoid the high cost of sewering large areas of Town in sensitive watersheds.
While Brewster residents and visitors appreciate the rural feel and low-density development, it is important to recognize what is
“open space”. Many people may perceive much of the undeveloped land in Brewster as permanent open space, but in fact
much of it is not formally restricted for such purpose. A study by Mass Audubon in 2014 characterized Brewster as 29%
protected open space, 29% developed, and 42% vacant. In comparison to Brewster, 34% of Barnstable County is protected
open space. A recent analysis of the conversion of “vacant land” in Brewster from 2013 to 2020 indicated that an equal
amount of land has gone from vacant to developed as from vacant to conservation – 158 acres.
22
Current Status and Trends
The Town’s Open Space and Recreation Plan provides a detailed summary of currently protected lands, but a partial list
includes: 2,200 acres of state and non-profit protected lands, 1,000 acres of municipally owned lands, and 822 Town-owned
acres controlled by the Conservation Commission. The not-for-profit Brewster Conservation Trust owns 618 acres of
permanently protected land and an additional 253 acres through conservation restrictions on private land. Orenda Wildlife
Land Trust owns another 27 acres, and the Brewster Conservation Commission also has conservation restrictions on a
number of privately held properties.
The Town’s commitment to open space started many years ago with the purchase of over 800 acres in the Punkhorn Parkland
in the late 1980’s and early 1990’s to protect the wellfields in West Brewster. During the same period, the Town also
purchased several hundred acres in south-east Brewster to protect wellfields in that part of Town. Even though water supply
protection has been an important criterion for land acquisition in recent years, only approximately 40% of the “Zone II” (area of
draw-down around Town wells) is currently protected.
As a heavily used public park and scenic vista, Drummer Boy Park represents a unique asset in Brewster. The Town updated
the Master Plan for Drummer Boy Park in 2021 and is currently in the permitting phase to develop a raised board walk across
the marsh, linking the park to the coastal beach and uplands at Wings Island.
Recent Actions by the Town
Brewster’s Open Space Committee completed an update of the Town’s Open Space and Recreation Plan (OSRP) in 2021.
The Plan identifies the following overarching goals:
1. Protect the Town’s drinking water supply to meet the needs of residents today and in the future.
2. Provide open space and recreation opportunities that maintain Brewster’s rural character and small coastal
community identity and support a sustainable local economy as a center for eco-tourism.
3. Preserve and enhance habitat diversity and protect marine and fresh surface water resources to maintain their
ecological functions and values to the community.
4. Provide a variety of recreation and open space opportunities to promote active and healthy lifestyles for Brewster
residents, ensuring equitable access for all users and abilities.
5. Support coordination and communication of regional open space and recreation needs.
23
Between 2018 and 2020, 13 parcels totaling 133 acres in the drinking water supply areas have been protected, often through
a partnership of Town and Brewster Conservation Trust. The Brewster Water Commissioners have also recognized this priority
and have created funding within their tariff structure for land protection.
Much has also been accomplished in Town to improve access to open space and recreation resources. The Town expanded
the satellite parking lot at Crosby Landing and a new access linking the Rail Trail at Nickerson State Park to the bayside at
Linnell Landing has been designed and permitted. This multi-use trail will provide walking and bike access to a large stretch of
state owned beach. The Town and BCT have opened up new public trails and published an updated guide to Brewster’s
walking trails.
Key Issues Moving Forward
Acquiring and managing open space to protect water resources and provide outdoor recreation will continue to be an
important goal for the Town and other organizations, such as the Brewster Conservation Trust.
The acquisition of the former Cape Cod Sea Camps presents enormous possibilities for the expansion of open space and
passive and active recreation. The Town has established planning committees for both the Bayside and Long Pond
properties, each charged with the development of a comprehensive plan for the respective properties. The planning
committees for the properties will consider all potential uses for the properties to develop a mastercomprehensive plan
consistent with community needs.
A new access linking the Rail Trail at Nickerson State Park to the bayside at Linnell Landing has been designed and permitted
but funding sources are yet to be determined.
Commented [SR13]: Move to community infrastructure
24
Housing
Background
The cost and availability of housing in Brewster was identified as the largest single challenge at the June 2017 Vision Planning
Workshops, with an emphasis on how the lack of affordable housing impacts young families. Workshop participants saw
housing as key to allowing young families to stay in Brewster, maintaining the diverse community that residents value, and
providing the workforce that the local economy needs. Affordable housing as defined by the federal government was identified
by workshop participants as the biggest challenge facing the Town. While those with the lowest incomes face the greatest
housing need and challenges, the cost and availability of housing- both for year-round rentals and ownership opportunities is
an issue as well for many households who do not qualify for affordable housing, making it challenging for both younger families
and older residents to remain in Town.
Brewster, like the rest of the Cape, is facing housing issues that are common to a number of resort, tourist-based areas
throughout the country that have a significant percentage of seasonally-used housing stock (44% in Brewster). These areas all
have high housing costs in part because the average income of second homeowners is greater than that of year-round
residents which can drive up the cost of housing. Brewster’s housing stock also primarily consists of detached single-family
homes (756%) plus twice the percentage of condominiums (11%) than in Barnstable County (ACS 5-Year Estimates, 2016-
2020). Environmental and infrastructure factors also contribute to the higher cost of housing in Town. According to the Cape
Cod Commission, one of the affordable housing challenges is the gap between the Cape’s comparatively low wages and high
housing costs. While wages have remained relatively stagnant, housing costs have risen dramatically. Brewster’s housing
problem is also exacerbated by its aging population with few young people and limited local workers.
As for affordable housing, the Town has 29768 units or 5.6.2% counted as affordable and needs to add 183 212 affordable
units to meet the 10% goal. The 10% metric, however, understates the range of housing needs that exists in Town. Currently,
203 of the affordable units are rental units. 31% of all rental units in Brewster are deed restricted affordable housing units. This
is reflected in the median Brewster rent of $1,097 which is artificially depressed by the percentage of subsidized housing.
A challenging housing situation has worsened dramatically since 2017. Intensified with changes associated by the Covid-19
pandemic, the cost of housing has increased along with a sharp decrease in the number of properties for sale. Additionally,
there has been a reduction in the number of homes used for year-round rentals. In 2021, the median sales price of a single-
family home in Brewster was $700,000, an increase of 30% over $540,000 in 2020, and an 80 % increase from the original
Housing Summary statistic of $389,750 in 2015. The affordability gap has also grown tremendously. A household income of
$176,000 is needed to purchase a median priced home today. For a median income household, an affordable price for a 3-
25
bedroom home, with today’s interest rates, would be about $300,000. 85% of Brewster year-round households own their own
homes, 28% of which are housing-cost burdened (paying over 30% of their income on housing), while 50% of Brewster year-
round rental households are housing cost burdened.
Recent Actions by the Town
Over the past five years, a clear pattern has emerged in Brewster’s housing response. Town support has resulted in a number
of housing initiatives and their corresponding Community Preservation Act (CPA), budget, and free cash funding. Creative
collaboration, supportive teamwork, and resident involvement have exponentially increased the Town’s efforts. Many of the
strategies identified in the Town’s 2017 Housing Production Plan (HPP) have been implemented. In 2017, the Town hired a
part-time housing coordinator with CPA funds to coordinate the remaining strategies identified in the Plan. The Town then
created a Municipal Affordable Housing Trust, supported with CPA funds and free cash allocations. In 2021, the Select Board
voted to create a financial policy and allot 50% of the forecasted new short-term rental revenue to the Housing Trust. In 2017,
Ocean Edge Resort received a special permit to create seasonal workforce housing on their property.
In 2018, Town Meeting adopted an Accessory Dwelling Unit (ADU) bylaw. This is a way to utilize current infrastructure, assist
homeowners, and create environmentally friendly housing. Over 20Approximately 16 accessory residential units , accessory or
ADU, have been permitted.
The Town has initiatives to both preserve housing and support housing without new construction. In 2021, along with Dennis
and Wellfleet, the Town was part of a $1.3-million-dollar regional Housing Rehabilitation and Childcare Community
Development Block Grant (CDBG). As the lead community, Brewster was awarded another $1.3-million-dollar regional CDBG
grant to continue the program in 2022. In response to the high price of rental housing and impact of Covid-19 pandemic on
workers, the Housing Trust created a rental assistance program funded with a CPA grant and managed by Housing
Assistance Corporation. The Town also continues to operate an affordable home ownership buydown program funded through
the CPA.
In 2018, the Town used CPA funds to purchase an access parcel and officially designated the 16 acres of Town land off
Millstone Road for community housing. The Brewster Housing Trust is evaluating a proposal to build a compact grouping of 45
energy efficient rental apartments which leaves most of the property untouched. Partnerships with non-profits and effectively
using Chapter 40B Comprehensive Permits were additional strategies in the HPP that have been pursued. Expected to open
in 2022, Brewster Woods will also provide thirty affordable rental apartments for those in the low to moderate income bracket
on Housing Authority land off Brewster Road. Elevation Financial, working in partnership with the Town is redeveloping the
former vacant Wingate Rehabilitation Center into Serenity at Brewster with 132 apartments for people aged 55 and over with
20% of the units to be deed restricted affordable for households up to 80% of the area median income (AMI).
Commented [ST14]: Jill should review and correct per the
2022 HPP.
26
The 2022 Brewster Housing Production Plan is an update to the 2017 Housing Plan. This plan accesses the community’s
housing needs, sets goals, and guides the implementation of Brewster’s Housing Program over the next five years. The Plan
aims to produce 24 units of affordable housing a year as Brewster works towards the state mandated 10% affordable year-
round housing stock. Brewster’s 2017 Housing Plan met this production goal twice and is currently certified by the state until
May 15, 2023. Funded with a Community Preservation Act grant, the 2022 Housing Plan was prepared by Barrett Planning
Group with a robust outreach process led by the Housing Partnership. The Select and Planning Boards approved the Plan in
July 2022, state approval followed in August 2022
Key Issues Moving Forward
There is no single solution that will provide all the needed housing options for our residents and workforce. While the
unanticipated pandemic has shown how housing intertwines with physical, economic, and community health, the 2021 Sea
Camps purchase demonstrates the Town’s ability to mobilize around a common goal. Looking forward, the Town has updated
the Housing Production Plan in June 2022. The updated HPP will help the Town better understand the impacts of the
pandemic, reassess the housing needs, and retool strategies for the next five years. A summary of the 2022 HPP is provided
in Section 7. The lack of a centralized or smaller scale wastewater treatment infrastructure limits the development potential of
available land. Rehabilitation and support programs will also be needed to both create and preserve housing.
Opportunities ahead for increasing housing options include expanded collaboration with Town and community entities.
Additional possibilities exist for joint work with conservation and environmental groups as well as businesses and the Chamber
of Commerce. Zoning remains an area of potential housing opportunity, including reassessing the current ADU bylaw.
27
Local Economy
Background
The Brewster Vision Plan workshops defined a sustainable local economy as one that builds on Brewster’s natural and human
assets, addresses the needs of small businesses, and provides year-round employment for Brewster’s young families.
Specifically, the workshops participants wanted to see:
• A greater focus on building a “green economy” based on the Town’s natural beauty and resources.
• An economy that fosters the growth of small business that are compatible with the Town’s character.
• Growth of a more sustainable year-round economy that encourages small businesses and better supports
Brewster’s workforce.
Regional Economy
According to the 2019 Cape Cod Comprehensive Economic Development Strategy (CEDS), the dominant industries in the
region are related to Cape Cod’s seasonal economy and retiree population: 17% in healthcare, 16% in accommodations and
food services, and 16% in retail trade.1 Just under a quarter of jobs on Cape Cod are in emerging industry sectors including
creative economy sectors, financial and information sectors, and professional services and technical services sectors, with
wages around or above the average for the region.2
Based on the 2017 Cape Cod Housing Market Analysis, average wages in all of the top seven Cape Cod sectors—
accommodation and food services, retail trade, healthcare, professional and technical services, construction, local
government, and administrative/waste services—are below the amount of household income per year required to afford a
median priced house in the region. Only the highest paid employees within the county’s major employment categories were
able to afford owning a house in 2015.3 Household income has not kept up with rising costs of housing on Cape Cod, an issue
that will be greatly exacerbated given the forecasted trends in population and employment.
Local Economy
According to the 2019 CEDS, Brewster’s top three employment sectors are in education and health services (39%), leisure
and hospitality (22%), and construction (9%). Based on the Cape Cod Commission’s Data Cape Cod portal, Brewster’s 2019
1 US Bureau of Labor Statistics, 2017 ES-202 data via the Massachusetts Executive Office of Labor and Workforce Development:
http://lmi2.detma.org/lmi/lmi_es_a.asp
2 Cape Cod Housing Market Analysis. 2017. www.capecodcommisison.org/housing
3 Cape Cod Housing Market Analysis. 2017. www.capecodcommisison.org/housing
28
median household income was $75,321. The unemployment rate in 2019 was 2.9% with average wages at $44,97946% of
Brewster’s workforce was employed in management, professional, and related industries, in comparison with the County at
36.7%. Brewster had a total of 314 business establishments with average wages of $44,998. The majority (68.5%) of these
establishments employed 1 – 4 employees.
Local Demographics
Brewster, like much of Cape Cod, is populated by a mixture of working families, retirees, summer residents, and visitors.
Brewster’s median age is 54.3 years, compared to 53.3 for Barnstable County as a whole. In 202219, Brewster’s population
was is 9,716 9,837 (2022 Town Census, Town Clerk, 8/15/2022) with a total of 7,961 housing units. As noted in the Land Use
section, Brewster has one of the highest percentages of total units that remain vacant for seasonal or recreational use at
463.8% in 2022, compared to 38.3% for Barnstable County as a whole. Forty-threeThirty-two percent of the year-round
residents in Brewster are over 65 years old. , while 47.9% are wWith many adults now working up to age 70, the working age
populationadults (between 25-7064 years old) account for .55% of the total population.
Brewster has many defining elements that make it an attractive place for retirees, seasonal residents, and visitors as well as
the working residents that support them. Like the rest of Cape Cod, the business and job mix in Town is heavily influenced by
the non-working populations. Economic growth and new opportunities depend in-part on bringing resources/money from
outside the area, into the area, which is what retirees, second-home owners, and tourists do for the region. Defining Brewster
as a place, and investing in the elements that define that place, is essential to building a strong local economy.
Recognizing that much of Brewster’s economy is based on its natural assets, the Chamber of Commerce’s Sustainability
Strategy promotes the Town as an eco-tourism center and builds on “green” opportunities such as recycling and biking. As
noted in the Climate Mitigation section, the Town has taken important steps in creating many elements of a green economy
through its policies and initiatives.
Recent Actions by the Town
The FY21-22 Brewster Select Board Strategic Plan includes actions under the Local Economy building block to complete and
launch an electronic permitting platform and guide to doing business in Brewster to assist residents, contractors, and
businesses in navigating local permitting processes. In addition, the FY21-22 Strategic Plan includes an action to consider
designating Underpass Road as a District of Critical Planning Concern with the Cape Cod Commission. This action would
allow the Town time to plan for the future development and redevelopment of this area as an economic development district. In
addition, the Town acquisition of the Cape Cod Sea Camps property gives the Town control over future land uses and
economic development opportunities for these key assets.
Commented [ST15]: Ask Jill for this number
Commented [ST16]: Ask Jill for this current %
Commented [ST17]: Update when the FY23-24 Strategic
Plan is finalized and actions for FY21-22 have been
determined
29
Key Issues Moving Forward
Brewster has an opportunity to review and revise local by-laws and investment strategies to meet its economic and community
development goals. With a clear vision for a sustainable economy, the Town can align its public policies, public investments,
and private efforts to build on and protect its assets. Many of the recommended actions needed to support the local economy
are also addressed through other Building Blocks including Community Character, Housing, and Governance.
Development of Town Center(s) with the necessary infrastructure, services, and mix of uses can help to maintain Brewster’s
community character, protect natural resources and open space, and provide opportunities for local businesses that provide
basic necessities for residents as well as visitors. Planned or proposed public facilities including a community center will also
play a key role in Town center development.
Brewster’s economic challenges include the high cost of housing, low wages, and funding for appropriate infrastructure,
including green infrastructure investments to protect natural resources. Addressing the housing needs of the Town will require
multiple strategies including implementation of the updated 2022-2027 HPP. The lack of existing centralized or smaller scale
wastewater treatment limits the development potential of available land and will require creative solutions by the Town to focus
infrastructure development in locations where it can be supported without compromising natural resources or community
character.
[Economy Graphic?]
30
[Figure # - Coastal Resources]
31
Coastal Management
Background
Brewster’s residents recognize the importance of the Town’s coastal resources to both residents and visitors. They provide
access to a range of summer and year-round activities, including swimming, boating, commercial and recreational shell
fishing, walking on the flats, watching sunsets, and other recreational activities. In the visioning process, the Town’s beaches
were identified as the second most important treasure, and directly linked to the highest ranked treasure, the overall character
of the Town. Town residents want to preserve and expand access to the shoreline while also preserving and protecting the
natural resources that make the coast so special.
The Town’s public access points are threatened by storms, which can damage both the beaches and their access points, and
by the increasing impacts of climate change. Nor’Easters have damaged parking areas and eroded the coastal dunes and
beaches in some of these locations, prompting improvements to Paine’s Creek, Ellis Landing, and Breakwater Landing
facilities over the last decade. Concerns over repetitive storm damage and planning for these improvements led to the
creation of the Brewster Coastal Advisory Group and the development of the September 2016 Coastal Adaptation Strategy to
address future management of Brewster’s shoreline. The Strategy presumes a sea level rise of one foot in 20 years.
Building on the Coastal Adaptation Strategy, the Brewster Coastal Committee completed the Brewster Coastal Resource
Management Plan (CMRP). Phase I has specific recommendations on improving and protecting coastal access, incorporating
the guiding principles, and employing a robust public involvement process to help refine specific plans. The Brewster Natural
Resources Advisory Commission, established in 2021, is charged with overseeing the implementation of the CRMP.
Current Status of Brewster’s Beaches and Coastal Access
The Town owns 12 access points to the beach (landings): 10 beaches with public parking areas, one new purchase (former
Cape Cod Sea Camps bay parcel), and one additional public beach with no public parking (Wing Island). Figure 1 shows the
locations of the 12 Town landings along the 7 miles of Brewster shoreline.
32
[insert graphic of beaches]
33
From an access standpoint, the Town maintains approximately 440 parking spots across all landings, including dedicated
handicap parking spaces and bike racks and other facilities during the summer months. Unfortunately, during summer peak
season, demand can be greater than the available access, and additional parking opportunities are limited. The beaches and
their access points are vulnerable to erosion from coastal storms and require frequent maintenance and investment by the
Town. Impacts to the landings are expected to increase over time due to rising sea levels and the potential for stronger, more
frequent storms. In response, the Town is adapting to recurring and increasing erosion and storm damage through retreat,
such as at the Paine, Ellis, and Breakwater Landings where pavement was moved further from the ocean edge.
Report on Trends
In February 2022, the National Oceanic and Atmospheric Administration (NOAA) released its Sea Level Rise Technical
Report. Based on NOAA’s analysis, the Town’s planning scenario of 1 foot rise in sea level in 20 years for Brewster’s coastline
is quite possible. Extensive sections of the Town’s seven miles of coast have historically and recently been exposed to storm
surge impacts, including dune wash over, flooding, and significant erosion. Based on the Center for Coastal Studies’ 2015
Century Scale Sediment Budget it is not clear if the tidal flats will remain exposed at low tide under future sea level rise
scenarios. Lacking the buffering capacity of the tidal flats, Brewster’s beaches and dunes would likely experience significant
erosion and storm surge during serious weather events.
Recent Actions by the Town
As noted in the Background section, the Town developed a consensus-based coastal adaptation strategy to identify priorities
and principles for future action. Survey results from the 2016 Coastal Adaptation Strategy confirmed broad support for the
Town’s coastal resources among all age groups and resident status.
The Town has added 110 upland parking spaces for access to Crosby Landing and completed the design, public outreach
and permitting of an elevated walkway to link Wing’s Island and its coastal beach to Town conservation land and Drummer Boy
Park. The Town also replaced an unsafe footbridge over the Freeman’s Pond creek to facilitate access to the large beach
located between Mant’s Landing and Paines Creek. Finally, in 2021 the Town purchased the former Sea Camps bayside
property, with 800 feet of shoreline that extends to the Spruce Hills beach. Public access to this beach for residents waswill
be provided in 2022 using a temporary parking area.
The Town also completed a Hazard Mitigation Plan Update in 2021 that was approved by the Federal Emergency
Management Agency (FEMA). As a result, the Town is eligible for funding under FEMA guidelines for mitigation measures that
reduce disaster losses.
34
In November 2021, Brewster Town Meeting approved a new stormwater by-law to better manage parcel-specific stormwater
changes associated with development and to meet the Town’s “MS4” permit requirements under bring the Town into
compliance with state and federal law. At this same Town Meeting, voters approved changes to the Town’s floodplain district
incorporating state planning guidance.
Key Issues Moving Forward
Existing and future coastal and climate processes indicate that Brewster’s coastal resources are under threat. The Town is
faced with the challenge of accommodating access to its coastal resources that has been impacted and could potentially be
reduced by coastal and climate processes. Ongoing development and redevelopment of existing properties along the
shoreline is also a concern.
With the projected significant acceleration of sea level rise in the next 30 years, it is not clear if Brewster’s tidal flats will remain
exposed at low tide under future sea level rise scenarios. Lacking the buffering capacity of the tidal flats, Brewster’s beaches
and dunes would likely experience significant erosion and storm surge during serious weather events. The Town should
update the 2015 Century Scale Sediment Budget in collaboration with Dennis, Orleans, and Eastham.
Brewster also participated in a 2021 effort by the Cape Cod Commission to review current land use regulations and to develop
a model coastal resiliency by-law.
The Town is heavily involved in maintaining and increasing access to existing beach facilities. Impacts to the landings are
expected to increase over time due to rising sea levels and the potential for stronger, more frequent storms. A number of
these landings are important for access to private beaches and the Town’s aquaculture sites as well as for emergency
vehicles.
Commented [ST18]: Is this the appropriate verb?
35
[Figure # - Water Resources]
36
Water Resources
Background
Brewster residents value the Town’s water resources and recognize that they are an integral part of the community’s
character. In the 2017 Brewster Vision workshops, residents especially identified Brewster’s freshwater ponds as important
assets to the Town for their aesthetic and recreational values. Residents also recognized the importance of clean drinking
water and the relationships between protecting open space and preserving water quality throughout the Town.
Over the last 40 years, the Town has made a concerted effort to protect groundwater quality. The Town has purchased
significant areas of open space to protect the Town’s ponds and drinking water, particularly in the zones of contribution to its
six municipal wells. The Town has also developed land use management policies and regulations to prevent development
activities from harming water resources, including new water quality performance standards in the Town’s Water Quality
Review Bylaw.
In 2015, the Town completed an Integrated Water Resource Management Plan (IWRMP). A 2022 IWRMP update indicates
that the Town’s drinking water is consistently excellent and has won two awards from the New England Water Works
Association as the best tasting water in New England. More than forty percent of the land area that contributes water to the
Town’s drinking water wells is protected open space. Nitrogen concentrations in the Town’s water supplies are consistently
below 1.0 mg/L, well below the federal standard of 10 mg/L. This is a direct result of the limited development in the vicinity of
the wells. However, developed land uses (housing, industrial uses) without proper management may threaten the quality of
drinking water.
There are about 80 freshwater ponds in Brewster. Based on the last summary of pond water data from 2009 developed by
the University of Mass School for Marine Science and Technology along with the Cape Cod Commission (SMAST and CCC,
September 2009), five of these ponds have excellent water quality while approximately 15 are classified as impaired due to
nutrient inputs, predominantly phosphorus, which contribute to excess algae growth in the ponds. Phosphorus enters the
ponds from septic systems, stormwater runoff and fertilizers applied to lawns and gardens.
Portions of Brewster lie within the watersheds to Pleasant Bay and Herring River. Nitrogen inputs from septic systems,
stormwater, and fertilizers within Brewster have contributed to water quality impairments in these estuaries. While Brewster
only has limited access to these coastal resources, the Town has an obligation to reduce nitrogen inputs to support the
restoration of the estuaries.
37
Recent Actions by the Town
The Town continues to actively manage its water resources. Collaboration with the Brewster Conservation Trust and the
Brewster Ponds Coalition expands the Town’s ability to manage and protect its water resources. Specific actions over the last
five years related to the implementation of the IWRMP and other Town initiatives are summarized below:
Drinking Water Protection
The Town, in collaboration with the Brewster Conservation Trust, continues to actively pursue open space preservation in the
wellhead protection areas that contribute water to the Town’s wells. Between 2018 and 2020 an additional 113 acres of land
was preserved to further protect drinking water quality. In addition, the Town is monitoring drinking water quality for per and
polyfluoroalkyl substances (PFAS) that that have been found in other drinking water systems on Cape Cod and are associated
with a variety of sources, including firefighting foams, food packaging, skin care and clothing products. To date, none of the
PFAS compounds have been detected in water pumped from the Town’s water supply wells.
Fresh Water Ponds
In 2016, the Town developed a Water Resource Atlas for 43 of the freshwater ponds in Brewster. The atlas highlights the
sensitive areas around each pond, including the surface watershed, the groundwater recharge area to each pond, and the
septic buffer around each pond. The atlas allows residents to understand the land use around each pond that affects water
quality.
The Mill Ponds Management Plan developed by SMAST (November 2014) provided an overall strategy for the restoration of
Walker’s Pond, Upper Mill Pond, and Lower Mill Pond, including recommendations for weed harvesting in Walker’s Pond and
an alum treatment in Upper Mill Pond to trap phosphorus in the sediments on the pond bottom that were implemented by the
Town. These measures are helping to restore water quality in both Upper and Lower Mill Ponds.
Coastal Estuaries
Brewster continues to work with Orleans, Chatham, and Harwich to implement the Pleasant Bay watershed permit and reduce
its nitrogen load to Pleasant Bay. A study begun in August 2021 is evaluating fertilizer application leaching rates at the
Captains Golf Course to inform nitrogen management decisions.
Stormwater Management
In November 2021, the Town adopted a stormwater bylaw that will improve how stormwater is managed across Brewster.
These regulations will help ensure that stormwater is treated prior to discharge, using best management practices are used to
treat for nitrogen and phosphorus as well as minimized sediments that could drain into nearby surface waters. Regulations
and guidance documents that explain how the bylaw will be implemented have been adopted and promulgated by the
Town.are being finalized by the Planning Board.
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Key Issues Moving Forward
Pleasant Bay Nitrogen Load
In addition to the low-cost nitrogen management practices being adopted at the Captain’s golf course to lower the nitrogen
threshold, the Pleasant Bay Watershed Permit requires that remaining load reductions required can be met through the
construction of a neighborhood wastewater treatment plant for a portion of the watershed, the use of nitrogen reducing onsite
system treatment systems, or a nitrogen trade with another watershed town. This cost could be reduced based on the results
of the golf course fertilizer leaching rate study which will be completed in 2023.The Pleasant Bay Watershed Permit also
requires that the Town address nitrogen inputs from future development in the watershed. Options including zoning and
regulatory requirements are being considered. For the Herring River watershed, there is no need to reduce the current
nitrogen inputs, but future inputs from increased development will need to be managed.
Drinking Water Protection
The Town should continue to monitor drinking water quality for per and polyfluoroalkyl substances (PFAS) that that have been
found in other drinking water systems on Cape Cod and begin development of a response and remediation plan for any future
detections.
Fresh Water Ponds
The Town is currently working to develop an updated summary of water quality in the major ponds in Brewster, utilizing the
annual monitoring data that has been collected since the last summary report in 2009. In 2016, tThe Town through Board of
Health Regulations has established a minimum 300’ septic leaching system setback from ponds. The Town may consider
further policies and regulations related to pond setbacks in the future. The Town should might also consider and pilot
programs for test innovative alternative septic system technologies that treat for phosphorus systems to septic for properties
that are in the septic buffer around each in contributing areas around ponds. The Town should also consider potential
development of septic system setback regulations around ponds. The Town Board of Health Regulations has established a
300’ septic leaching system setback from ponds [Jon add more language here on land use activities?].
Commented [ST19]: Same here
Commented [ST20]: This verb sounds like a directive to the
Town. Is that appropriate wording here?
Commented [ST21]: Same here
39
Governance
Background
In 2016, the Government Study Committee completed its 2-year review of the Town’s organizational structure, duties and
responsibilities of various Boards and Departments, and overall methods of communication. The Committee’s final report
identified recommendations for the Town to consider, ranging from the form of governance to the number of boards and
committees with overlapping charges.
Primary themes that emerged from the 2017 Vision Plan workshops relative to Governance included:
• A desire for government to be more transparent and customer-service oriented, and to further embrace technology
to better communicate and engage citizens in town-wide decision-making processes.
• A highly valued school system that is treasured by existing residents and one that attracts people to Brewster; and
• An opportunity to more proactively engage both Brewster’s skilled retiree population and general citizens of every
age in Town affairs.
Recent Actions by the Town
The Town established a Charter Committee in 2019 to address the structure and powers of Brewster town government. The
Charter was approved by the Select Board and then by Town Meeting vote in Spring 2021.
The Select Board develops an annual Strategic Plan with goals linked to the Vison Plan Building Blocks/Goals to keep work
aligned with the Vision Plan. The Plan’s goals inform the Town’s ongoing and upcoming policy and operational initiatives. A
monitoring matrix with general timeline, priorities, responsible parties, and key stakeholders for each goal facilitates
accountability and tracking of progress. Significant progress has been made on many priorities identified in the Vison Plan as
a result of this coordinated effort.
Town’s Communication Tools
Several initiatives have been undertaken to expand and improve communication to citizens about Town initiatives, plans and
progress.
Town Website
The Town has long maintained a website where current information is posted by department, as well as developed bulletin
boards, informational brochures, and an email list with more than 845 current subscribers. The Town has also created
dedicated webpages such as Water Planning and Cape Cod Sea Camps Properties where interested persons can learn about
40
specific projects. In response to public input, a more user-friendly website has been designed and developed, with launch
planned for FY23.
Expanded Use of Media and Social Media
The Town requires all board and committee meetings to be presented live and/or recorded for viewing on Government
Channel 18 and online in an effort to increase transparency and better inform the public of governance processes and
decisions. Recently, the Town made the BGTV media resources available by downloading the “Cablecast” app. Town
livestream and media are now available on various platforms. Announcements are frequently posted on the Town’s home page
with links to recorded board and committee meetings and posted on social media platforms including Facebook and Twitter.
Beginning with the start of the COVID pandemic in 2020, the online meeting platform ZOOM has been used for purposes of
remote board and committee meeting participation that is open to the public for viewing and participation as appropriate.
Viewing is either live or by recording. In order to reach a wider group of older residents, the Council on Aging and Brewster
Ladies Library expanded its online offerings through taped presentations on BGTV and LCTV.
Other Online Communication Tools
Starting with FY23, the Town publishes the annual budget in a user-friendly online format. The OpenGov platform provides a
dynamic, visual representation of Town finances for citizens to better understand where Town funds are being spent.
Residents can view budget details by department as well as current year accomplishments and goals for the coming year.
The capital planning process will transition to this platform in FY2023. Use of this platform is intended to enhance transparency
and public engagement.
Citizens Forums
The opportunity for residents to raise issues and make announcements at many Town Committee meetings was introduced
through inclusion of a “Citizens Forum” item on many standing meeting agendas. Most Town committees now have an
associated email address so that residents can provide comments and questions directly to a committee.
Use of Public Forums
To improve communication and community engagement around important issues and projects, Town Administration offers
public forums to present information and/or progress reports on such matters as an overview of warrant articles prior to Town
Meeting. Similar informational sessions are provided through groups like the Brewster Community Network and Brewster
Chamber of Commerce.
Other Efforts
The vast majority of Town Committees and Boards are staffed by volunteers. Volunteers also help make Town Department
programs very successful. The Select Board has implemented procedures for Standing Committee appointments to increase
Commented [ST22]: Change if launched before submission
of LCP.
41
volunteerism. A “Citizens Leadership Academy” is planned to support volunteer recruitment and enhance volunteer
contributions. Managing volunteer programs requires staff resources. A “Serve Your Community” form to recruit new
volunteers is available on the Town website and maintained by individual Town Departments and Committees, but there is no
central database. A central database of volunteers would offer many advantages.
The Town has also launched several initiatives to strengthen the customer service approach to Town services, including staff
training in customer service, the 2021 adoption of a pledge and training for Town officials to enhance diversity, equity, and
inclusion for all. This is reinforced through Town Administrator quarterly meetings with staff and monthly meetings with
Department heads. Town Administration and the Brewster Chamber of Commerce cohost biannual meetings with local
business owners. The Town is also launching an electronic permitting platform to replace its paper-based applications for
Building, Health, and Planning Departments to supplement online applications for beach, recycling, and shellfish permits have
been implemented along with the FY23 use of license plate reader technology at the transfer station. To facilitate resident or
business owner communication with the appropriate Department, a Town Hall “Greeter” position was instituted in 2019, was
discontinued per assessment of low use and in response to the pandemic, and then reinstated in 2022.
Key Issues Moving Forward
While the Town has made substantial progress since the 2018 Vision Plan, enhanced communication, transparency, customer
service, and identifying methods for engaging residents of all ages requires continued attention and efforts. The Government
Study Committee recommended creating a consolidated “Inspectional Services Department” or a “Community Development
Department”, which may help to serve small business interests and deliver more efficient customer service through
consolidated permitting and inspections. The Town may also want to consider a consolidated department model for Brewster.
42
Community Infrastructure
Background
The term community infrastructure is meant to encompass the variety of physical infrastructure and facilities that the Town and
other community organizations provide for public purposes. Comments received in the June 2017 vision workshops
demonstrated the considerable value of community infrastructure for recreation, public gatherings, and alternative
transportation. The most frequently mentioned infrastructure need was for a community center combined with a new location
for the Council on Aging. Bike trails and sidewalks for recreation and as a means of alternative transportation around town
were the second most frequently mentioned infrastructure need. A survey of Eddy School students also identified the need for
active recreation sites such as skateboard parks and swimming pools.
Community infrastructure supports many of the other building blocks, particularly community character, economy, and coastal
management (beach access). This section will focus on the issues of the community center, bike and pedestrian ways, and
active recreation as high priorities.
Community Space
A variety of facilities are currently used for public meetings and gatherings, including the Ladies Library, Brewster Baptist
Church, Council on Aging, and Eddy and Stony Brook Schools. Town Hall is used primarily for official board and committee
meetings. There is no multi-purpose facility which allows a variety of uses and interactions for all generations.
Bike and Pedestrian Facilities
The Cape Cod Rail Trail (CCRT) stretches 7 miles from south central Brewster to the northeast line with Orleans, connecting
to the entire 25 miles of paved bike/pedestrian trail. Maintained by the Commonwealth’s Department of Conservation and
Recreation (DCR), the CCRT is one of the most actively used recreational facilities in Brewster and serves as a centerpiece of
Brewster’s “green economy.” In the summer, it also serves as a way for visitors and summer workers to get around the town.
A new access linking the Rail Trail at Nickerson State Park to the bayside at Linnell Landing has been designed and permitted,
but funding sources are yet to be determined. DCR also maintains the numerous bike and hiking trails in Nickerson State Park.
There are 7 miles of sidewalks along Rt. 6A from Nickerson State Park to Stony Brook Road.
Re-paving of Underpass and Snow Roads also extended sidewalks and created narrow bike lanes. Millstone Road design work
also includesd pedestrian and bike improvements. Chapter 90 funds will target Highway 137 from Route 6A to the intersection
of Route 124, including re-surfacing, drainage improvements and accommodating bike and pedestrian traffic. The main
challenge to expanding bike and pedestrian ways is the narrow width of Brewster’s roads and the extent of wetlands. Speed
43
limits also dictate design standards on major roads and require separation of vehicles and pedestrians or bicyclists. Creating
public access on Brewster’s private roads can also be a challenge.
44
[Figure # - Transportation Resources]
45
Active Recreation Facilities
Town facilities for active recreation are spread out throughout the town, including baseball and athletic fields, community
tennis and pickleball courts, and playgrounds are located at Drummer Boy Park, the Eddy School, and Stony Brook School.
Captain’s Golf Course is a significant Town-owned community recreational facility and a visitor attraction with public meeting
space. A new carport solar canopy over the golf course parking lot produces an estimated 740,291 kWh annually, saving
approximately 523 metric tons of carbon dioxide equivalent and providing the Town with more than $40,000 annually in
revenue.
Recent Actions by the Town
Community Space
A 2021 School Consolidation Study has proposed three options for consolidation of the Eddy and Stony Brook schools and
housed at an expanded Stony Brook School. This would make the Eddy School available for re-purposing. Further action will
be determined by the School Committee. The recent purchase of the former Cape Cod Sea Camps properties, particularly the
bayside property on Main Street, offers significant potential as a locationn alternative site for a community center, as well as
beach access, and a variety of recreation activities. The Town has established planning committees for both the Bayside and
Long Pond properties to develop comprehensive plans.
Bike and Pedestrian Ways
The Town updates and implements a Pavement Management Plan (PMP) on a regular basis to prioritize funding for
improvements to Town roadways including bicycle and pedestrian facilities. A 2016 report prepared by the Brewster Bikeways
Committee identifies alternative biking routes for transportation and recreation, proposes safety improvements, and
recommends public education measures. In 2017, Town Meeting approved $100,000 for the installation of warning lights at
the four CCRT crossings in town to enhance safety at the crossings. The Town also completed a Beach Access strategy,
which includes expanding bike and pedestrian access to Town landings as a way to reduce the need for more beachfront
parking. A CCRT spur from Nickerson State Park to the beach between Crosby and Linnell Landings is also planned to expand
bike and pedestrian access to the beach.
In January 2020, the Select Board approved a Complete Streets Policy to accommodate all users by creating a context-
sensitive roadway network that meets the needs of individuals utilizing a variety of transportation modes. The Policy directs
decision-makers to consistently plan, design, construct, and maintain roadways to accommodate all anticipated users. Private
ways may be exempted from this requirement upon approval by the Select Board with consultation from appropriate town
departments.
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Active Recreation Facilities
The updated Master Plan for Drummer Boy Park was approved by Town Meeting in 2021. Town Meeting also approved funds
to improve accessibility at the Freemans Way fields. As noted elsewhere in the LCP, the two properties of the former Cape
Cod Sea Camps represent a significant opportunity for active recreation facilities.
Key Issues Moving Forward
Priority community facilities and infrastructure needs for the coming years include implementation of the Master Plan for
Drummer Boy Park; future consideration of consolidation of the Eddy and Stony Brook Elementary schools;
and identification of a location for a multi-generational community center. Future development of the Bayside and Long Pond
properties offers a unique opportunity for the Town to consider a variety of potential uses for the property to meet multiple
Town needs.
Continued expansion of bike and pedestrian trails and paths to provide alternatives to automobile travel as well as recreational
opportunities for residents and visitors is a key component of Brewster’s vision and goals. The Town should also continue to
implement the Complete Streets design as appropriate in future repaving projects.
Commented [ST23]: Same question about this verb
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Solid Waste Management
Background
Solid waste management is a critical activity designed to protect human health and the environment while providing a service
at a reasonable cost and supporting the economy. Many municipalities, including Brewster, have assumed this important
management role by providing either a transfer station or even curbside collection. New regulations adopted at the state level
resulted in the Town initiating the lengthy process of closing its landfill. The current transfer station building was built in 1988
and designed for trash hauling.
The SEMASS Partnership Agreement signed in 1985 by the Town of Brewster with other Cape Towns reduced the amount of
greenhouse gas emissions attributable to trash disposal while generating electricity. The initial 30-year contracts required that
all waste be delivered to SEMASS either via the “trash train” or by direct haul. The SEMASS Partnership Agreement was
originally due to expire in 2015. The SEMASS facility was constructed, owned, and operated by Energy Answers Corporation
until it was acquired by Covanta in 2008.
In 1990, the MassDEP introduced waste bans on many recyclable items as well as those containing toxic materials. Once
introduced, the Town began its recycling program in earnest, while continuing to send its residual, non-recyclable waste, to
SEMASS for energy production. In parallel with negotiations with SEMASS for a new agreement in 2010, the Recycling
Commission began discussing ways to reduce how much of Brewster’s waste was sent to SEMASS. The new contract
negotiated by the Town and effective January 01, 2011, allowed for any legitimate waste reduction, reuse, or recycling
program to be implemented with no penalty. The Town chose to renegotiate 5 years early to keep future tip fees in check by
providing stable, below market rates until 2030. In addition, commercial waste haulers were prohibited from using the transfer
station effective January 1, 2011.
Recent Actions by the Town
The Town implemented Pay-As-You-Throw (PAYT) in 2013 as a means of increasing recycling and decreasing the volume of
trash for disposal and re-branded the transfer station to the Brewster Recycling Center. During the first full year, the PAYT
program resulted in a 47% reduction in waste for transport to SEMASS for energy recovery and an increase of 26% recycling.
Since the introduction of PAYT, the Town has continued to derive benefit from the program, despite COVID and the increase
in the Town’s population.
The Town has added organics recycling, to help decrease the amount of material that is sent off-site for combustion and
separation of newsprint and glass to save money and better manage these materials. Collections for e-waste, hazardous
waste, mattresses, and yard waste continue to be successful and desired by permit users. The Swap Shop rules were re-
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drafted resulting in more materials being diverted from Brewster’s waste stream. Waste practices at all Town offices and
facilities were evaluated and a recycling program was established at all beaches and recreational areas.
Several Town bylaws have been passed including a ban on single-use plastic bags and the sale of single-use plastic bottled
water by Brewster businesses; and a ban on single-use bottled water by Town Departments. Additional textile recycler options
are being brought on board in advance of a new textile waste ban effective November 2022. Prior to the pandemic, the
Brewster Recycling Commission was continually active in community outreach to promote better management of household
waste.
Key Issues Moving Forward
There are two major challenges facing good solid waste management in Brewster:
1. Changes in the recycling industry as to what and how to recycle properly; and
2. Re-education of patrons regarding the importance of these changes.
The recycling industry must continually adapt to new materials and new ways to manage those materials. To process
materials effectively at MRFs (Material Recovery Facilities), a combination of mechanical and human separation is necessary.
For the system to work effectively, residents must follow the Recycling Guide to maximize what can and should be recycled.
As an alternative to providing solid waste management through the Recycling Center, the Town could choose to use total
curbside collection for trash and recyclables and compliance could be better. However, there is a significant cost to town-wide
collection and a feeling of loss of control by homeowners.
To maximize recycling, reuse activities, and reduction of the amount of waste generated by Brewster’s homeowners, the
following is recommended:
1. Recycling Center user-wide survey (based on permits) to determine the most effective method of communication so
that changes in procedures can take quickly place when most economically advantageous to the Town.
2. A local on-going multi-media campaign covering what, why and how to recycle typical household materials.
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Climate Mitigation and Adaptation
Background
According to the July 2021 Cape Cod Climate Action Plan, climate change is an unprecedented challenge that is transforming
Cape Cod. Rising seas and changes to the coastline are the most dramatic evidence of climate change, but a changing
climate is also impacting every facet of Cape Cod’s natural, built, and community systems. Our land use patterns, and way of
living dictate our greenhouse gas (GHG) emissions, the leading cause of the climate crisis. Dedicated and immediate actions
at the state, regional and local level are necessary to slow the effects of climate change and improve the region’s resiliency to
its impacts. By the end of the century, damage to Cape Cod’s buildings and land lost to inundation from sea level rise alone
could total over $30 billion.
In response, the Massachusetts Clean Energy and Climate Plan and climate policy call for dramatic reductions in GHG
emissions including a 50% reduction in carbon emissions by 2030 and a net zero carbon emission target for 2050. The Cape
Cod Climate Action Plan and 2018 Cape Cod Regional Policy Plan identify goals and policies as well as strategies and actions
to reduce GHG emissions for Cape communities and enhance local and regional resiliency to present and future climate
threats.
The Town of Brewster has taken important steps in adopting local policies designed to support attainment of statewide GHG
targets and regional goals for climate mitigation, specifically addressing the municipal stationary and transportation energy
sources. The Town adopted a Climate Change and Net Zero Emissions Resolution on October 19, 2020, to reduce net
greenhouse gas and the Town’s vulnerability to climate change.
Brewster’s 2019 Municipal Vulnerability Preparedness Summary of Finding report documents climate and weather-related
challenges in recent years. Intense rainstorms in 2017 and 2018 caused street flooding, coastal flooding, coastal erosion,
storm surge, power outages and major travel disruptions. Low lying roadways and access points to Town beaches often flood
during king tides (e.g., especially high spring tide). Brewster can expect to experience more severe events in the years to
come in addition to rising sea levels due to climate change.
Recent Actions by the Town
The following are specific actions the Town has taken to support the newly adopted Brewster Climate Change and Net Zero
Emissions Resolution and Town policy objectives on reduction of GHG emissions and address the Town’s vulnerability to
climate change.
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Energy Reduction Measures
• Board of Building Regulations and Standards Stretch Energy Code (2019) minimizes the life-cycle cost of new
construction by utilizing energy efficiency, water conservation and other renewable/alternative energy technologies.
The Stretch Energy Code applies to all new residential and commercial construction in the Town.
• Town-Wide Energy Reduction Plan includes a summary of municipal energy uses and short- and long-term plans for
municipal energy reduction. The majority of energy consumed is by municipal buildings (60%). The remaining
usage includes vehicles (30%) and utility pumping (10%). The goal is to reduce baseline energy consumption by
twenty (20) percent by FY2023.
Green Communities Designation
• Brewster was designated as a Massachusetts Green Community in 2020 under the Massachusetts Department of
Energy Resources (DOER) Green Communities Act of 2008. Grant funds through the Green Communities program
were awarded for energy conservation measures such as programmable thermostats, an energy management
system, heat pump water heater, and demand control ventilation in Municipal Buildings.
• Brewster has completed projects is wWith funding from the Cape and Vineyard Electric Cooperative, including
installation of solar panels at the public schools and capped municipal landfill, and solar canopies on the golf course
parking lots. 3.18628 total MW of solar generating facilities located on four municipal properties: the transfer
station, the Stony Brook and Eddy Schools; and the Captains Golf Course and driving range. The total
revenues and savings to the Town through leases and off-taking arrangements with other municipal facilities is
approximately $273,772.06 (FY22). The total energy savings to the town from the rooftop solar installations on
Stony Brook and Eddy Elementary Schools is 256,345.61 kWh (FY22). Carport solar canopies over the golf
course parking lots produce an estimated 740,291 kWh annually, saving approximately 523 metric tons of carbon
dioxide equivalent and providing the Town with more than $40,000 annually in revenue.
• [Comment from CCC: would be helpful to include data about the municipal solar projects such as total generation
capacity to help illustrate the Town’s progress in this area]
• The Town’s long-standing commitment to open space protection has helped sequester carbon by protecting
forested lands as a natural carbon sink.
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Complete Streets
• Brewster adopted a Complete Streets Policy in 2020 to encourage safe and accessible options for all modes of
travel including less personal vehicle travel, a significant source of GHG emissions, and more opportunity for
walking, biking, and transit.
Key Issues Moving Forward
The Town is in the process of converting municipal vehicle fleets to electric vehicles, hybrid vehicles or vehicles using cleaner
fuels. For municipal vehicles that will not be converted to electric in the near-term, the Town could also consider the use of
hybrid vehicles or cleaner fuels, as available. The Town is also reviewing methods to convert the conventional heating system
in the Stony Brook school to cold weather heat pumps.
There are three private electric vehicle charging stations in the town of Brewster. The Town could pursue resources and
programs to support development of additional electric vehicle charging stations in appropriate locations to help reduce the
local GHG emissions in support of State goals.
The Town is considering opportunities to sequester carbon by focusing future development (including a new Town Center) in
mixed-use centers of housing, economic activity and services and away from areas that are undeveloped.
The Town employs a part-time energy manager through Cape Light Compact to analyze the energy uses of the town and
finding ways to save money and reduce dependency on fossil fuels as appropriate. The Town could consider performing
energy assessments on all municipal buildings and work with the Cape Light Compact to access available programs.
The Town could also consider pursuing adoption of small-scale community solar at appropriate locations. The CCC created an
online screening tool to identify areas in Barnstable County that may be appropriate for large-scale solar photovoltaic (PV)
projects and those areas that may be less appropriate due to potential impacts to natural resources. This tool could be used
as a starting point to help inform the siting of potential solar PV projects. More information on the solar screening tool can be
found here: https://www.capecodcommission.org/our-work/model-solar-bylaw/. Brewster is also working with the Cape Cod
Commission on updating and strengthening local bylaws to better address coastal development and redevelopment with the
goal of building coastal resiliency.
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SECTION 4
Community Goals and Purposes
COMMUNITY CHARACTER
GOAL: Sustain and foster Brewster's historic and archeological values, rural nature, small town feel, and socially
inclusive spirit and vitality
PURPOSE 1: Provide social opportunities and services for all
PURPOSE 2: Maintain the Town’s historic heritage and style
PURPOSE 3: Maintain the Town’s small-town feel and scale through appropriate development
WATER RESOURCES
GOAL: Protect Brewster's freshwater system to preserve high quality drinking water and maintain or improve the health of our
ponds, wetlands and their buffers, and marine watersheds
OVERARCHING PURPOSE: Continue to up-date and implement the Integrated Water Resources Management Plan.
PURPOSE 1: Protect town drinking water supply areas by continuing open space acquisition and other measures
PURPOSE 2: Improve pond water quality through public education, regulation, and mitigation activities
PURPOSE 3: Protect water quality in marine watersheds through public education, regulation, and mitigation activities
OPEN SPACE
GOAL: Maintain and expand open space assets to provide passive recreation, protect fragile plant and wildlife habitat,
protect water resources, and contribute to carbon sequestration
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PURPOSE 1: Improve public access to and expand recreational area use of open space
PURPOSE 2: Prioritize environmentally sensitive areas for preservation
PURPOSE 3: Maintain open space through density and development standards
PURPOSE 4: Maintain open space assets for public resource values
HOUSING
GOAL: Provide more affordable, attainable, accessible, safe, and fair housing, and support residents to maintain and
preserve their current housing to remain in the community.
PURPOSE 1: Achieve the Commonwealth’s goal of 10% affordable housing by 2027
PURPOSE 2: Establish attainable housing by promoting housing choices to allow families, single individuals, older adults,
and seasonal workers to live, work, and prosper in the community
PURPOSE 3: Preserve existing year-round housing
COASTAL MANAGEMENT
GOAL: In the context of coastal change, preserve and protect Brewster’s coastal resources, expand public access, and
minimize the vulnerabilities from coastal hazards due to climate change
PURPOSE 1: Protect coastal resources in ways that preserve coastal ecosystems and the character of the Town and coastal
neighborhoods
PURPOSE 2: Maintain and expand public access for all through public consensus and explore alternate modes of transport and
access points
PURPOSE 3: Adapt to climate change projections and advance adaptation and resiliency techniques that are financially and
environmentally sustainable
PURPOSE 4: Provide access for coastal water dependent activities
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LOCAL ECONOMY
GOAL: Promote a sustainable economy that builds on Brewster’s natural and human assets, addresses the needs of
small businesses, and provides year-round employment for Brewster’s young families
PURPOSE 1: Preserve and enhance Brewster’s economy based on the Town’s natural and cultural resources
PURPOSE 2: Maintain and attract small businesses compatible with the Town’s character and promote year-round
employment
GOVERNANCE
GOAL: Provide an inclusive Town government that encourages participation by all residents by engaging in two-way
communication, expanding volunteer opportunities, and providing customer friendly service
PURPOSE 1: Continue to communicate Town plans and activities to residents
PURPOSE 2: Expand the volunteer base to increase the use of citizen expertise and build diversity in decision-making
PURPOSE 3: Continue to strengthen the customer service approach to Town services
COMMUNITY INFRASTRUCTURE
GOAL: Maintain and enhance town infrastructure in an environmentally and economically sustainable way that supports
government services, opportunities for community interaction, the local economy and culture, public health, multi-modal
transportation options, and expanded recreational opportunities.
OVERARCHING PURPOSE: This goal, the Town’s Capital Plan, and the Select Board’s Strategic Plan shall inform one another
and shall be applied in harmony and aligned with one another.
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PURPOSE 1: Plan and design Town building and construction projects to benefit the broad cross-section of all users and
interests in the community
PURPOSE 2: Provide enhanced recreational opportunities, access and facilities for all
PURPOSE 3: Plan and design traditional infrastructure projects like road improvements and maintenance to best serve the
needs of the overall community, limit environmental impacts, and balance fiscal impacts
SOLID WASTE MANAGEMENT
GOAL: To manage a municipal solid waste system that protects public health, safety, and the environment, optimizes
financial methods, communicates effectively with users, and employs innovative strategies to reduce solid waste and related
costs
PURPOSE 1: Reduce the waste stream
PURPOSE 2: Improve the efficiency of the solid waste facility
CLIMATE MITIGATION AND ADAPTATION
GOAL: Support and advance the Commonwealth’s greenhouse gas reduction goals, including promoting sustainable
energy use and renewable energy that protects the Town’s natural resources
PURPOSE 1: Reduce the town’s contribution to and vulnerability to climate change
PURPOSE 2: Review and update Town bylaws and regulations to mitigate projected climate change impacts
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SECTION 5
Strategies and Actions
The following Action Plan is proposed to achieve building block goals over the next 5 to 10 years. The list of actions is not
intended to be a complete list of all that the Town could do but does include the most important actions. While a large and
ambitious number of actions are presented, priorities for implementation will be identified during the Select Board’s annual
strategic planning exercise.
The list of actions has been drawn from numerous sources including the following:
Actions from the Vision Plan that have not yet been implemented,
Recommendations from implementing stakeholders about current needs,
Recommendations from the summary papers about trends and needs, and
Results of the public survey gaging public support for individual actions.
As the final phase of action plan development, the draft list of actions was reviewed and refined by workshops of key Town
departments and local organizations to assess the accuracy, relevancy, and implement ability of each action. This vital part of
the process helped ensure that the capacity and commitment to implement the Action Plan will make the LCP a living plan.
Below, the Action Plan is presented by building block, including the building block goal, purpose, and proposed actions.
[Note: Numbering system included for actions as recommended by Town Administrator Peter Lombardi to facilitate coordination
with LCP capital facilities plan, Selectboard strategic planning process, and CIP]
COMMUNITY CHARACTER (CC)
GOAL: Sustain and foster Brewster's historic and archeological values, rural nature, small town feel, and socially
inclusive spirit and vitality
PURPOSE 1: Provide social opportunities and services for all
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Actions:
CC1.Expand and enhance service programming for all, including recreational opportunities in a multi-generational community
center and at the former Sea Camps Bay and Long Pond properties.
CC2. Identify, develop, and support new services as needed, building on diversity, equity, and inclusion.
CC3. Ensure that school facilities and activities meet the needs of young families.
CC4. Increase accessibility to all Town activities and facilities.
CC5. Evaluate providing financial support for Pre-K to attract and retain young families.
PURPOSE 2: Maintain the Town’s historic heritage and style
Actions:
CC6. Support existing regulations and educate public on building design along Rt. 6A to preserve historic character.
CC7. Consider sensitivity to historic nature in development of Town projects.
CC8. Investigate the need for a Demolition Delay Bylaw and implement if supported.
PURPOSE 3: Maintain the Town’s small-town feel and scale through appropriate development
CC9. Explore the establishment of a Town Center and/or activity centers (Village Business Zones) and potential uses.
CC10. Consider land use tools to manage the development of a Town Center and/or activity centers.
CC11. Review mixed use potential in a Town Center and/or activity centers with parking considerations and a plan for
walkable and bike able use.
WATER RESOURCES (WR)
GOAL: Protect Brewster's freshwater system to preserve high quality drinking water and maintain or improve the
health of our ponds, wetlands and their buffers, and marine watersheds
OVERARCHING PURPOSE: Continue to up-date and implement the Integrated Water Resources Management Plan.
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PURPOSE 1: Protect town drinking water supply areas by continuing open space acquisition and other measures
Actions:
WR1. Continue land purchases to protect the drinking water and limit further development around land that protects the
aquifer, coordinate with neighboring towns.
WR2. Consider further strengthening drinking water supply protection in industrial zones.
WR3. Evaluate other actions to protect drinking water from the impacts of other land uses.
[Comment from CCC: consider action to preserve water quantity to maintain a sustainable supply of high-quality drinking
water]
PURPOSE 2: Improve pond water quality through public education, regulation, and mitigation activities
Actions:
WR4. Promote and research, including through pilot programs, the use of innovative septic systems and other non-traditional
wastewater management models, develop financial management assistance programs and/or non-financial incentives and
evaluate management and financing options.
WR5. Explore the feasibility of cluster sewage treatment systems for multifamily housing areas and neighborhoods that will
impact pond water quality where supported by sufficient density.
WR6. Fully implement the stormwater bylaw and share further information with the public.
WR7. Continue to update pond water quality data and report to the public.
WR8. Educate the public on water quality issues and what people can do to make a difference in their own homes.
WR9. Pursue land acquisition to protect pond water quality.
PURPOSE 3: Protect water quality in marine watersheds through public education, regulation, and mitigation
activities
Actions:
WR10. Evaluate the maximum build-out in the Pleasant Bay and Herring River watersheds and its impact on water quality;
consider regulations to mitigate impacts.
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WR11. Promote and research, including through pilot programs, the use of innovative septic systems and other non-
traditional wastewater management models, develop financial management assistance programs and/or non-financial
incentives, and evaluate management and financing options.
WR12. Explore the feasibility of cluster sewage treatment systems for multifamily and neighborhoods that will impact marine
watershed water quality where supported by sufficient density.
WR13. Continue exploring nitrogen reduction practices on golf courses.
WR14. Pursue land acquisition to protect marine watersheds water quality.
OPEN SPACE (OS)
GOAL: Maintain and expand open space assets to provide passive recreation, protect fragile plant and wildlife
habitat, protect water resources, and contribute to carbon sequestration
PURPOSE 1: Improve public access to and expand recreational area use of open space
Actions:
OS1. Continue to acquire open space, emphasizing the importance of recreation, the potential for
building trail networks, and the positive effect of woodlands in climate mitigation as criteria for land acquisition.
OS2. Develop an integrated trail system for the Long Pond Woodlands and former Sea Camps Long Pond property.
Continue to improve public education and information, including guides and signage, about access to and locations of
municipal open space assets.
PURPOSE 2: Prioritize environmentally sensitive areas for preservation
Actions:
OS3. Continue to prioritize land acquisition in public drinking water supply areas.
OS4. Formalize the criteria to evaluate open space acquisitions.
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OS5. Emphasize the importance of pond and fragile habitat protection as related to this Purpose.
PURPOSE 3: Maintain open space through density and development standards
Actions:
OS6. Revise regulations and bylaws to direct growth toward areas with public services, economic activities, and transport,
and away from environmentally sensitive areas.
OS7. Develop design standards to prevent fragmentation of environmentally sensitive areas.
PURPOSE 4: Maintain open space assets for public resource values
Actions:
OS8. Develop and maintain an inventory of all Town-owned open space.
OS9. Develop an active management program for Town-owned open space.
HOUSING (HO)
GOAL: Provide more affordable, attainable, accessible, safe, and fair housing, and support residents to maintain and
preserve their current housing to remain in the community.
PURPOSE 1: Achieve the Commonwealth’s goal of 10% affordable housing by 2027
Actions:
HO1. Implement the 2022 Housing Production Plan (HPP) Update.
HO2. Collaborate with existing local and regional groups to conduct public forums educating the general public on what
affordable housing is and why it is important in the Town of Brewster.
HO3. Work collaboratively with other towns to increase opportunities for affordable housing.
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PURPOSE 2: Establish attainable housing by promoting housing choices to allow families, single individuals,
older adults, and seasonal workers to live, work, and prosper in the community
Actions:
HO4. Review and consider revising, as appropriate, the zoning bylaw to clarify/allow mixed use developments.
HO5. Evaluate ADU bylaw to improve efficacy, explore incentives for a greater number of ADUs, and connect owners to
community resources.
HO6. Support creative funding and collaborative partnerships (public/private) in the development of community housing,
including incentives for year-round rentals.
HO7. Work collaboratively with other towns to increase opportunities for attainable housing.
HO8. Review and evaluate the zoning bylaw with the aim of promoting more opportunities as appropriate for various types and
forms of housing, including two-family residential/ duplex; multi-unit/ multi-family residential; and mixed-use residential
development.
HO9. Prioritize the adaptive reuse of existing buildings for housing.
HO10. Evaluate the use of Town-owned properties and propose creative solutions, including reuse of Town owned buildings for
housing, such as the former Sea Camps dormitories on the Bay property.
HO11. Evaluate the acquisition of land by the Town for housing.
HO12. Encourage housing in areas near transportation, public services, and economic activities.
HO13. Explore potential housing programs, opportunities, and funding for those earning 80% to 120% of Area Median Income
(AMI).
PURPOSE 3: Preserve existing year-round housing
Actions:
HO14. Promote ability for residents to transition to different forms of housing and remain in Brewster over a lifetime by
providing a wide range of housing choices.
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HO15. Explore solutions to allow residents to age in place including funding or subsidizing building adaptations, co-housing,
and a review of co-pairing situations.
HO16. Evaluate ADU bylaw to improve efficacy, explore incentives for a greater number of ADUs, and connect owners to
community resources.
HO17. Support creative funding and collaborative partnerships (public/private) in the preservation of community housing,
including incentives for year-round rentals.
COASTAL MANAGEMENT (CM)
GOAL: In the context of coastal change, preserve and protect Brewster’s coastal resources, expand public access,
and minimize the vulnerabilities from coastal hazards due to climate change
PURPOSE 1: Protect coastal resources in ways that preserve coastal ecosystems and the character of the Town
and coastal neighborhoods
Actions:
CM1. Evaluate and implement local coastal resiliency by-laws and regulations to preserve the scale,
character, and resources in the Town’s coastal planning area.
CM2. Establish a uniform definition of the 100-year coastal floodplain for local regulations.
CM3. Increase public awareness of the importance of healthy coastal wetlands and natural processes, and of the need to
protect these resource areas.
PURPOSE 2: Maintain and expand public access for all through public consensus and explore alternate modes of
transport and access points
Actions:
CM4. Explore and evaluate the need for, and feasibility of, alternative transport and options for off-site parking in general and
for potential retreat parking for Paine’s Creek and Mant’s Landings.
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CM5. Complete the permitting and construction of the Wing Island Boardwalk and the design and construction of the
Drummer Boy Park Master Plan, Phase 1.
CM6. Provide interim access and complete long-term planning for beach access at the First Light Beach property.
CM7. Continue to explore opportunities to improve visibility and mobility access at beach landings.
PURPOSE 3: Adapt to climate change projections and advance adaptation and resiliency techniques that are
financially and environmentally sustainable
Actions:
CM8. Periodically assess coastal resource conditions for comparison to baseline conditions and on a regional scale, including
sediment budget update, storm tide pathways, and a regional framework for resilience.
CM9. Explore regulatory options for managed retreat from high-risk coastal areas.
PURPOSE 4: Provide access for coastal water dependent activities
Actions:
CM10. Provide access for commercial aquaculture by updating regulations, evaluating the designation of an Aquaculture
Development Area, and analyzing the costs and benefits of expanding shell fishing and aquaculture.
CM11. Provide opportunities for commercial shellfish harvesting by up-dating regulations.
CM12. Expand propagation and other activities to support recreational shell fishing.
CM13. Manage competing uses at town landings and mooring areas.
LOCAL ECONOMY (LE)
GOAL: Promote a sustainable economy that builds on Brewster’s natural and human assets, addresses
the needs of small businesses, and provides year-round employment for Brewster’s young families
PURPOSE 1: Preserve and enhance Brewster’s economy based on the Town’s natural and cultural resources
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Actions:
LE1. Develop an economic development strategy that builds on Brewster’s natural, cultural, and
human resources and aims to maintain existing small businesses and attract new small businesses.
LE2. Work proactively with the Brewster Chamber of Commerce and other stakeholders to refine a common marketing
strategy.
LE3. Provide more information, including signage and online material, to help visitors find their way to public resources,
businesses, and other amenities in town.
LE4. Consider the impact of Town facilities in anchoring community activity centers in making capital investment decisions.
PURPOSE 2: Maintain and attract small businesses compatible with the Town’s character and promote
year-round employment
Actions:
LE5. Review and revise bylaws and regulations to allow a greater variety of small business, including
in-home businesses, compatible with the Town’s character.
LE6. Build public awareness/understanding of the concept of form-based zoning. Consider form-based zoning to focus on the physical
form of development rather than on the type of business.
LE7. Develop a guide to doing business for local businesses in Brewster.
LE8. Continue to implement online permitting to clarify and simplify the permitting process.
GOVERNANCE (GO)
GOAL: Provide an inclusive Town government that encourages participation by all residents by engaging
in two-way communication, expanding volunteer opportunities, andproviding customer friendly
service
PURPOSE 1: Continue to communicate Town plans and activities to residents
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Actions:
GO1. Develop a written Communications Plan to better inform residents about Town affairs.
GO2. Continue to provide news and announcements on the Town website and on social media.
GO3. Provide updated and relevant information on the Town website, including Town finances, projects, permitting
processes, and other initiatives.
PURPOSE 2: Expand the volunteer base to increase the use of citizen expertise and build diversity in decision-
making
Actions:
GO4. Develop and launch a Citizens Leadership Academy to help introduce residents to government
services and volunteer opportunities.
GO5. Continue the use of Town-wide activities and ad hoc committees to engage residents in Town affairs.
GO6. Develop a central database of volunteers to assist with recruitment of qualified volunteers across all Town
Departments and appointed Committees.
GO7. Acknowledge contributions of active volunteers and recognize volunteers when they complete their commitment in
order to improve volunteer retention.
PURPOSE 3: Continue to strengthen the customer service approach to Town services
GO8. Develop a resource section on the Town website that includes educational materials including
videos (e.g., by link to Vimeo, BGTV or LCTV files) and fact sheets on topics such as responsibilities of Town
Departments, zoning, permitting, ADUs, and other matters of high interest.
GO9. Develop a ‘How to Do Business Guide’ for homeowners to explain permitting processes.
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COMMUNITY INFRASTRUCTURE (CI)
GOAL: Maintain and enhance town infrastructure in an environmentally and economically sustainable
way that supports government services, opportunities for community interaction, the local
economy and culture, public health, multi-modal transportation options, and expanded
recreational opportunities.
OVERARCHING PURPOSE: This goal, the Town’s Capital Plan, and the Select Board’s Strategic Plan shall inform
one another and shall be applied in harmony and aligned with one another.
PURPOSE 1: Plan and design Town building and construction projects to benefit the broad cross-section of all
users and interests in the community
Actions:
CI1. Include enhanced universal accessibility where feasible on Town properties and projects.
CI2. Move forward on a needs assessment for a multi-generational community center, including potential sites, users and, as
applicable, next steps related to results of the School Consolidation Feasibility Study and the Bay Property comprehensive
planning process.
CI3. Implement the updated Master Plan for Drummer Boy Park.
CI4. Complete the comprehensive planning processes for, and begin implementation of, the plans for the Bayside and Long
Pond properties.
PURPOSE 2: Provide enhanced recreational opportunities, access and facilities for all
Actions:
CI5. Develop a town-wide plan for expanding bike and pedestrian paths and sidewalks, possibly including road improvement
priorities, reducing speed limits, a Complete Streets design which is compatible with Brewster’s character, and/or non-road-based
path opportunities.
CI6. Pursue the development of the CCRT extension from Nickerson State Park to Cape Cod Bay including the
consideration of alternatives for crossing Rte. 6A.
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PURPOSE 3: Plan and design traditional infrastructure projects like road improvements and maintenance to best
serve the needs of the overall community, limit environmental impacts, and balance fiscal impacts
Actions:
CI7. Factor, budget, and set aside long-term improvement and maintenance costs in the funding for capital projects.
SOLID WASTE MANAGEMENT (SW)
GOAL: To manage a municipal solid waste system that protects public health, safety, and the
environment, optimizes financial methods, communicates effectively with users, and employs
innovative strategies to reduce solid waste and related costs
PURPOSE 1: Reduce the waste stream
Actions:
SW1. Implement an ongoing multi-media public education campaign to reduce the waste stream
including re-purposing and re-using items and optimizing recycling.
SW2. Enhance and publicize regional waste collection initiatives such as hazardous waste collection.
SW3. Further investigate opportunities between Brewster and regional initiatives for solid waste management.
PURPOSE 2: Improve the efficiency of the solid waste facility
Actions:
SW4. Improve communications with the public concerning Recycling Center operations, practices, and
policies using a variety of print and electronic media channels.
SW5. Conduct a Recycling Center study and site analysis including traffic circulation, optimal use of space, safety, and
potential re-use options.
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CLIMATE MITIGATION AND ADAPTATION (CA)
GOAL: Support and advance the Commonwealth’s greenhouse gas reduction goals, including promoting
sustainable energy use and renewable energy that protects the Town’s natural resources
PURPOSE 1: Reduce the town’s contribution to and vulnerability to climate change
Actions:
CA1. Develop and implement a Net Zero Energy Plan for the Town’s assets and operations.
CA2. Implement the MEMA/FEMA approved 2021 Local Multi-Hazard Mitigation Plan.
CA3. Consider specific actions for reducing energy use, including completing energy audits in all Town buildings; specifying
actions regarding increased energy efficiency in existing and newly constructed Town buildings; locating solar panels/arrays
on Town buildings and facilities; and purchasing alternative energy Town vehicles when due for replacement.
CA4. Encourage solar panels on commercial and residential buildings or parking lot canopies/carports that maintain the Town
character.
CA5. Work with private entities to install public charging stations at appropriate municipal or publicly accessible locations.
CA6. Consider provision of financial incentives and/or assistance for installation of solar panels on private homes.
CA7. Modify or re-locate town infrastructure and buildings to reduce the potential damage due to climate change such as
flooding.
PURPOSE 2: Review and update Town bylaws and regulations to mitigate projected climate change impacts
Actions:
CA8. Review zoning bylaws to consider and develop amendments for consistency with this goal, including the existing
solar bylaw and small-scale solar installations.
CA9. Clarify design guidelines for the Historic District regarding renewable energy.
CA10. Review and consider revising existing Town bylaws and regulations dealing with fertilizer management.
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CA11. Foster natural carbon sequestration by: amending Town bylaw to limit the clearing of forested land, including for solar
farms; and exploring opportunities to restore degraded native plant communities.
CA12. Review zoning bylaws to determine if they promote efficient development patterns that will encourage a walkable
and bikeable community.
PURPOSE 3: Build awareness about the nature of climate change and Town efforts to mitigate climate change
Actions:
CA13. Develop an Education and Preparedness Campaign for the general public and the business sector that includes guidance
and checklists for reducing fossil fuel use, as well as recommendations to increase community resilience to the impacts.
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SECTION 6
Capital Facilities Plan
In this section the LCP will align, and cross-reference capital investments contemplated in the action plan with the Town’s on-
going capital facilities planning. This analysis ensures that the capital requirements necessary to implement the LCP are
planned for and met.
[address CCC comment/recommendation to include green infrastructure and LID practices into facilities and infrastructure
practices in the capital facilities plan]
[to be completed]
Allow 2 pages
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SECTION 7
Housing Production Plan Summary
Housing Production Plan Summary
This section summarizes the July 2022 Town of Brewster Housing Production Plan (HPP).
Important Acronyms
AADU - Affordable Accessory Single-Family Dwelling Units
AHTF – Municipality Affordable Housing Trust Fund
AMDU - Affordable Multifamily Dwelling Units
BHA - Brewster Housing Authority
CPA - Community Preservation Act
CPC - Community Preservation Corporation
DHCD - Massachusetts Department of Housing and Community Development
HPP - Housing Production Plan
LIP - Local Initiative Program
SHI - Subsidized Housing Inventory
Introduction
More than one-third of Brewster’s land has been reserved for conservation, watershed protection, open space, and recreational
purposes. The achievements of the Town and open space organizations have contributed greatly to Brewster’s beauty and
environmental quality, yet the same achievements have impacted both the availability and cost of housing in the Town.
Much of the housing growth occurring on Cape Cod and in the Town is a direct response to seasonal and vacation housing
demand. As of 2020, approximately 42% of the Town’s housing stock is occupied intermittently by seasonal, recreational, or
occasional residents as compared to 38% for Barnstable County as a whole. This represents an increase of over 6% since 2010,
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which continues to exacerbate the challenge of obtaining year-round rental housing. In the summer, Brewster’s resident
population increases dramatically and puts substantial pressure on Town services and the long-term, permanent population.
Local estimates indicate that the total number of visitors is approximately 30,000 people. Seasonal workers have also
encountered significant challenges finding decent and affordable housing in Brewster and throughout the Cape and Islands. The
principal constraints to the development of housing in Brewster are the lack of public sewer service, the prevalence of
ecologically sensitive areas, lack of available land, and local regulations.
Affordable housing is 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. Low- or moderate-income refers to
income limits set by the HUD.
Brewster has made significant progress implementing the 2017 Housing Production Plan, (HPP) and establishing a robust
housing program. Steps taken in fulfillment of the 2017 HPP strategies include:
• Hiring a housing coordinator with CPA and Town funds (2017).
• Creating a municipal Affordable Housing Trust (Trust) with CPA and Town funds (2018).
• Adopting Accessory Dwelling Unit (ADU) and Accessory Commercial Dwelling Unit (ACDU) bylaws (2018).
• Planning for the protection of existing SHI-units through a $500,000 CPA allocation to the Trust (2019).
• Supporting Chapter 40B-permitted projects to create 16 Habitat for Humanity ownership homes (2020 and 2021) and 30
affordable rental units (Brewster Woods, anticipated in 2022);
• Establishing a policy (via the Select Board) to allocate 50% of the new short-term rental revenue to the Trust (2021).
• 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).
• 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).
• Using CPA funds to support regional housing development, including: FORWARD in Dennis, a housing development for
adults with autism (2019); a veterans’ home in Dennis for the Cape and Islands Veterans Outreach Center (2021,); and
Pennrose in Orleans (2022,).
• 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).
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• 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 45 rental units in 12 buildings (2022).
Housing Trends
The following population and household trends were researched and analyzed for the 2017 HPP and incorporated into the 2022
HPP Update. These trends are for periods prior to January 2017, when the HPP was published.
Population and Household Trends
• Between 1970 and 2000, Brewster’s population increased more than five-fold from 1,790 to 10,094 residents. From 2010
to 2020, Brewster’s population increased by 5% (about 500 residents) between 2010 and 2020, despite Massachusetts
Department of Transportation socio-economic projections forecasting a potential decline, with a total population of 10,318
residents in 2020. The number of households also increased by 9%.
• The population of older individuals is growing in Brewster, while the population of young individuals between the ages of
25 and 44 is shrinking. The median age in Brewster is 56.5 years, as opposed to 53.7 years for Barnstable County and
39.6 years for the state. Brewster’s population over 55 is 52.9% compared to Barnstable County’s 48.2% and the state’s
30.1%.
• Non-families (single person living alone or two or more unrelated people living together) comprise nearly 37.7% of all
households in Brewster, an increase from 2010’s 36%. Households with children under 18 is only 18.8%, compared to the
state at 29%.
• Brewster’s population is predominantly white (91.4%), with a small percentage of residents identifying as Black, Hispanic,
or Two or More Races.
• Most family households in Brewster are two-person households; the average 2020 household size is 2.11 residents, below
the county’s 2.22 and the state’s 2.56 estimates.
• Approximately 6.9% of Brewster households live below the poverty line., Of these households, the highest percentage is
female householders living alone between the ages 25 and 44 (30.5%) and over 65 (30.2%). In the Town, 31% of all
households are cost burdened (paying more than 30% of income toward housing costs) compared to 35% for Barnstable
County. 58% of households experiencing some degree of cost burden are low-to-moderate income (LMI) households
compared to 17% non-LMI households, with renters more at risk than homeowners as a renter’s median household
income is $35,000.
• While there has been an overall decrease in households with low-to-moderate incomes, there has been a corresponding
increase in households with higher incomes. Between 2010 and 2018, the percentage of households earning at or below
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the household area median family income (HAMFI) decreased by 4.8%, which are primarily focused in two census block
groups meeting 2020 Environmental Justice (EJ) population criteria, and households earning above the HAMFI increased
by 4.8%. The median household income for Brewster is $66,306, which is less than the state median, but greater than
that of the Lower Cape overall.
• Educational levels in Brewster are higher than the comparison communities, with 48% of the adult population (over age
25) possessing a bachelor’s degree or higher.
Housing Market and Affordability
• Nearly 51% of the housing stock was built between 1980 and 1999, with 36% (2,878 units) built in the 1980s, indicating
that Brewster’s housing inventory is fairly young.
• The 2020 U.S. Decennial Census indicates that there are 8,234 housing units located in Brewster, up from 7,953 in 2010.
Of the housing units in Brewster, 75% are detached single-family homes, compared to the state’s 52%. Since most of
Brewster’s housing consists of detached single-family homes, most of its households are homeowners.
• Building permits act as good indicators to determine housing activity. From 2017-2021, single-family residential
development makes up most of the residential development, with 130 building permits issued . Only 11 multi-unit permits
were issued in the same time period as well as 48 demolition permits. Since adoption of the Town’s 2018 ADU/ACDU
bylaw, over 20 building permits for ADUs have been issued.
• The Town’s affordable housing developments (single- and multi-family) include:
o Serenity at Brewster (100% affordable)
o Brewster Woods
o King’s Landing
o Huckleberry Lane
o Frederick Court
o Wells Court
o 14 Habitat for Humanity homes on Paul Hush Way
o 7 Brewster Landing homes
o 3 homes at White Rock Commons
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o Recently the Town accepted a proposal to develop 45 affordable one-, two-, and three-bedroom rental units on 16.1-
acres of Town-owned Land on Millstone Road.
• As a seasonal destination for tourists, Brewster has a large percentage of seasonal housing. According to 2020 Census
data, 46.3% of the housing units in Brewster are owner-occupied (1.5% decrease from 2010), 8.2% are renter-occupied
(1.7% decrease from 2010), and 45.5% are vacant (3.2% increase from 2010). The state’s vacancy rate is only 9.1%.
This high vacancy rate is attributed to the region’s seasonal housing inventory.
• Town-wide, Brewster’s’ median single-family sales price in 2022 (through April) was $753,500 for a single-family
compared to the County’s median sale price of $602,000. From 2020 to 2021, the median sales price for single-family
homes rose $135,500 and for condominiums $92,250.
• Multi-family homes within Brewster are not as prevalent as they are on the rest of the Lower Cape. Brewster lacks
developments that are larger than 10 units in part because the town does not have wastewater infrastructure.
• The County’s market rent uses HUD’s 2022 Fair Market Rent (FMR) for the County
Metropolitan Statistical Area (MSA).
• For Brewster, based on 2010 Census data, the number of affordable units required to
meet the State’s 10% affordable housing goal is 480 units, or 10% (rounded) of the
4,803 year-round units reported. According to 2010 Census data, Brewster has 5.58%
of its housing stock on the state’s Subsidized Housing Inventory (SHI), requiring an
additional 212 units to make the 10% minimum. Approximately 25% of the existing
affordable units in Brewster were created with comprehensive permits (Habitat for
Humanity and Frederick Court Development were the largest builders). It is expected in
2022 that three recently permitted projects (Serenity at Brewster, Brewster Woods,
and Red Top) will add 59 units to the SHI.
• Brewster’s average single family tax bill is consistently less than that of other Lower Cape communities; however, the
2022 residential tax rate for Brewster is $7.85 per $1,000 in assessed value, higher than Chatham ($4.62) and Orleans
($7.20), although lower than Harwich ($8.11).
Priority Affordable Housing Needs
The Housing Production Plan’s (HPP) primary goal is to allow Brewster to make progress toward the 10% statutory minimum
under Chapter 40B, which requires the Town to have 10% of its total year-round housing units deed-restricted to be affordable
for low- and moderate-income households. The Chapter 40B Subsidized Housing Inventory (SHI) will determine whether the
actions addressed in this HPP are sufficient to reach the 10% minimum.
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After considering the trends, the Town considers the following as its future priority housing needs:
• Low-income rental housing for families
o Deeply subsidized multi-family garden-style housing for small low-income families
o Townhouse-style or single-family housing for larger low-income families
o Use Community Preservation Act (CPA) funds, etc. to purchase existing single-family homes for Brewster Housing
Authority (BHA) management
• Rental housing for single people
o Studios and single-room occupancy (SRO) units for single people with low and extremely low incomes
• Subsidized rental housing for the elderly
• Acquisition and rehabilitation of substandard housing
Housing Production Goals
The Department of Housing and Community Development (DHCD) HPP guidelines require that the goals include both qualitative
and quantitative outcomes based on community and regional needs. Qualitative goals support housing type diversity that is
affordable for a range of income levels, and support individuals, families, persons with special needs, older adults, as is feasible
within the housing market. Quantitative goals should work to increase the SHI-eligible housing units by at least 0.5% of its
year-round housing count.
In addition to the quantitative goal of obtaining SHI-units, the Town identified four major qualitative goals:
1. Increase and diversify year-round housing options in Brewster for a range of income levels and household types.
2. Prevent displacement of current residents and facilitate housing mobility for households looking to move within or into
Brewster.
3. Align development with the principles of the Town’s Local Comprehensive Plan/Vision Plan.
4. Continue to build capacity to produce housing through staffing, funding, regional partnerships, advocacy and education,
and relationships with nonprofit and for-profit developers.
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Housing Targets
To qualify for a DHCD-approved HPP, Brewster needs to meet an affordable housing production standard and obtain
certification from DHCD that the standard had been met. The minimum target is 0.5% of the Town's year-round housing
inventory as reported in the most recent decennial census, and the target has to be met within a single calendar year.
Communities that meet their annual goal can request a one-year certification of compliance with DHCD, and communities that
reach a 1.0% target are eligible for a two-year certification of compliance. This would offer the Town flexibility on how to
manage the comprehensive permit process, despite still being below the 10% SHI unit target. Brewster would need to produce
24 new SHI-eligible affordable housing units in a calendar year based on 2010 Census data year-round housing count, and 48
units for a two-year certification.
Affordable units produced under this HPP are eligible for listing in the Chapter 40B SHI. For non-comprehensive permit units,
this means making sure the units meet the requirements of DHCD’s Local Initiative Program (LIP) by virtue of a qualifying local
action, such as:
• Zoning approval, such as “by right” or special permits for affordable housing.
• Funding assistance, such as the Community Preservation Corporation (CPC).
• Provision of land or buildings that are owned or acquired by the Town and conveyed at a price that is substantially below-
market value.
To be counted as SHI, units must be:
• A result of municipal action or approval.
• Sold or rented based on procedures articulated in an affirmative fair marketing and lottery plan approved by DHCD.
• Sales prices and rents must be affordable to households earning at or below 80% of area median income.
• Long-term affordability is enforced through affordability restrictions, approved by DHCD.
• A Subsidized Housing Inventory New Units Request Form must be submitted to DHCD to ensure that these units get
counted.
Regulatory Barriers
This section describes land use and environmental regulations affecting residential development including zoning and state and
local wetland regulations.
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Zoning
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, requiring minimal lot sizes of at least 60,000 square feet (RL and
RM) or 100,000 square feet.
Permitted Residential Uses
The Brewster Zoning Bylaw includes three residential districts that range in minimum lot size requirements from about 1 – 1/3
acre to 2 – 1/3 acres in size. The Commercial High Density (C-H) and Village Business (VB) districts allow residential and
commercial uses, and the Industrial (I) district allows residential, wholesale, manufacturing, and industrial uses. Some other
Residential Uses Permitted (by right or special permit) include:
• Assisted living (special permit in the residential districts and by right in the CH district)
• Nursing homes (special permit in the residential districts and by right in the CH district)
• Lodging houses (special permit in the residential districts and by right in the CH and VB districts)
Accessory Dwelling Units (ADUs) and Multifamily Dwelling Units
The Town’s current ADU bylaw (Section 179-42.2), adopted in 2018, allows homeowners in residential districts to add
accessory dwelling units (ADU) by right on lots over 30,000 square feet, and by special permit on smaller lots in the CH and VB
districts or within certain water protection areas. Accessory commercial dwelling units (AACDU) (Section 179-42.3) allows
property owners to add an ADC to commercial properties by special permit in the CH and VB districts. The bylaw requires ADUs
and ACDUs not be more than 40% of the habitable area of the primary building, or 900 square feet, whichever is smaller.
The bylaw retained an older special permit provisions for “accessory residential buildings” as residential uses in the Use
Regulations and “accessory apartments” as a footnote in the zoning bylaw’s Area Regulations. Dwelling units under these
provisions 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.
Multifamily dwellings are permitted by special permit in the C-H district and have stricter lot coverage limits than other uses
allowed in the district (25% buildable uplands with a lot for multifamily compared to 40% for other uses in the CH district), as
well as in the Planned Residential Development (PRD) area under Section 179-36 of the Zoning Bylaw.
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Cluster, Major, and Planned Residential Development
Section 179-35 under Article IX allows for cluster residential development, intended to allow flexibility in lot sizes and building
arrangements, while maintaining the Town’s existing character. However, cluster residential development is only permitted by
special use permit granted by the Planning Board. Any parcel of at least ten acres in size in the R-R, R-L, and R-M districts may
be used for a cluster development and divided into lots for a single-family residential use. The number of dwelling units shall
not exceed the number of units which could be developed with a conventional plan for land in the R-R, R-L, or R-M districts.
Section 179-35.2 under Article IX allows for major residential development, permitted by special use permit from the Planning
Board. Flexible development could be approved within a major residential development or a density bonus could be granted 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. Subsidized elderly housing is also allowed in a major residential development.
Section 179-36 under Article IX allows for the planned residential development (PRD), intended to provide an alternate pattern
of land development to that permitted in the R-M and R-L districts, is only permitted by special permit. Single-family attached
or detached dwellings, as well as two-family or multifamily dwellings are permitted within planned residential developments
with no minimum lot size, percentage of lot coverage and lot width, thus allowing for greater density.
Section 179-69 under Article XIII allows for Natural Resource Protection Design (NRPD), which is intended to protect water
resources and preserve open space within the District of Critical Planning Concern (DCPC). Like the PRD, this 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. NRPD, when not involving other uses requiring a
special permit, is allowed by right in the DCPC with an underlying residential designation, subject to the requirements
regulating the subdivision of land (if applicable) and subject to the endorsement by the Planning Board.
The Town also has a number of special districts to protect environmental and historic resources that are key to those areas:
floodplain district, wetlands conservancy district, water quality protection district, and the Old King’s Highway Regional Historic
District.
Socio-Political Considerations and Barriers
During the community engagement process for this plan, the public acknowledged that cost of housing for the average
household and supply are growing issues, as is “NIMBY”-ism (Not In My Back Yard) and general resistance to neighborhood
changes. The recent Vision Planning community survey also identified that there is overall less support for housing goals as
opposed to other topics. Political leadership and raising community awareness is necessary to bring empathetic consciousness
around the housing issues the community faces.
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Implementation Strategies
The following strategies for the 2022-2027 HPP align well with DHCD’s requirements and 760 CMR 56.03(4)(d), which outlines
strategies that will facilitate the production of SHI-eligible housing units, although plans can include additional strategies based
on local need. The 2022 HPP incorporate the following four strategies to meet the 10% DHCD affordable unit goal:
Regulatory Reform - Involve tools that make permitting more efficient, allow more housing development, and allow more
types of housing in Brewster.
Strategy 1: Re-evaluate the existing ADU and ACDU bylaws and other references to accessory apartments; explore
amendments to streamline these provisions and improve their efficacy.
Strategy 2: Amend zoning to clearly allow mixed uses that include housing in business-zoned areas.
Strategy 3: Re-evaluate the existing multifamily dwelling bylaw (Section 179-34) and consider changes and other
regulatory measures to facilitate multi-unit residential development.
Strategy 4: Explore measures to require or encourage the inclusion of affordable units in residential developments over
a certain number of units.
Strategy 5: Allow and incentivize the adaptive reuse of existing buildings for the creation of affordable and mixed income
housing.
Strategy 6: Utilizing the findings of the ongoing Integrated Water Resources Management Plan, continue to identify
appropriate wastewater treatment systems to enable the creation of denser housing developments that can support the
inclusion of affordable units.
Funding and Assets - Protect existing affordable housing and pursue specific ways to expand local funds.
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.
Strategy 8: Develop a five-year financial plan for the Brewster Affordable Housing Trust and determine whether
additional funding streams should be explored.
Strategy 9: Based upon the BAHT five-year financial plan, explore other funding opportunities to support housing
initiatives at a range of income levels.
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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.
Strategy 11: Develop criteria for assessing a property’s suitability for the creation of affordable and attainable housing.
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.
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.
Education and Advocacy - Capture key stakeholders most at risk from the effects of limited housing choices.
Strategy 14: Develop a collaborative housing education plan that connects to the Town’s Local Comprehensive Plan.
Strategy 15: Continue to ensure regular participation by staff and members of Town bodies in available training on
housing-related issues including fair housing, local and regional housing needs, comprehensive permit administration,
and other relevant topics.
Local Planning and Policy - Pursue partnerships and create a more welcoming environment for housing development.
Strategy 16: Continue to make good use of Chapter 40B, including the Local Initiative Program (LIP), as a vehicle for
creating affordable housing.
Strategy 17: Encourage public/private partnerships to facilitate the collaborative production of affordable housing to
meet a range of community needs.
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.
Strategy 19: Increase housing staff capacity to ensure continued and consistent collaboration with the Building,
Conservation, Health, and Planning Departments.
Community Resources & Local Support – Ensure needs of the program benefactors are met.
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Strategy 20: Continue to CDBG-funded housing rehabilitation program to enable income-eligible homeowners to make
critical home repairs.
Strategy 21: Evaluate current CPC-funded housing initiatives and consider adjusting to meet current needs.
Strategy 22: Explore other opportunities for direct support for eligible households, including partnerships with local non-
profits and housing assistance providers.
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SECTION 8
Supporting Plans and Policies
[to be completed – references/links to supporting plans and documents]
Bylaws and Regulations
Brewster Code
List Chapters including…
(Chapter 179, Zoning)
(Chapter 290, Subdivision Rules and Regulations)
Brewster health regulations (list chapter/ sections)
Brewster wetlands regulations
Brewster Selectboard regulations
Brewster Stormwater regulations
Brewster Today (Land Use)
Community Character
Open Space
Town of Brewster Open Space and Recreation Plan Update, 2021
Housing
American Community Survey 2019 Data, 5-year estimates
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Brewster Community Preservation Plan FY23-FY27
Cape Cod & the Islands Association of Realtors 2021 Annual Report & December 2021 Brewster Local Market Update
US Census 2020
Local Economy
Coastal Management
FEMA CRS Program, 2018
Hazard Mitigation Plan Update 2021
MVP Program
Water Resources
Horsley Witten Group, Inc. January 2022. Integrated Water Resource Management Plan 2022 Update.
Horsley Witten Group, Inc. 2016. Water Resource Atlas Fresh Water Ponds, Brewster, Massachusetts.
University of Massachusetts School for Marine Science and Technology and Cape Cod Commission. September 2009.
Brewster Freshwater Ponds: Water Quality Status and Recommendations for Future Activities. http://brewster-
ma.gov/images/stories/BrewsterPonds_FinalReport090109.pdf.
University of Massachusetts School for Marine Science and Technology. November 2014. Mill Ponds Management
Plan - Walkers Pond, Upper Mill Pond, and Lower Mill Pond.
Solitude Lake Management. January 30, 2020. Alum Treatment Final Completion Report, Upper Mill Pond January
2020.
Governance
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Town of Brewster Annual Strategic Plan, adopted by Selectboard 8/22 (date)
Community Infrastructure
Solid Waste
Climate Mitigation
Housing Production Plan
Town of Brewster Housing Production Plan 2022 -– 2027
Other Housing
American Community Survey 2019 Data, 5-year estimates
Brewster Community Preservation Plan FY23-FY27
Cape Cod & the Islands Association of Realtors 2021 Annual Report & December 2021 Brewster Local Market Update
US Census 2020
Capital Facilities
Town of Brewster Community Preservation Plan, FY23 – FY27. 3/23/22
Pavement Management Plan
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SECTION 9
Implementation and Performance Monitoring
Monitoring the implementation of the LCP and reporting to the community are a core part of the Vision Planning Committee’s
charge. In 2021, the Committee produced a report on the implementation of the Vision Plan, a simple report that was well
received by citizens and Town government. The Committee will continue to conduct annual assessments of LCP implementation.
These reports will include activities by Town government and local organizations to achieve LCP goals, purposes and actions. It
will include qualitative and quantitative data about implementation as well as an analysis of factors that support and constraint
implementation.
Implementing the LCP will be the responsibility of numerous Town boards and departments and organizations in the
community. The Select Board will hold responsibility for identifying action priorities and overseeing implementation. The
primary vehicle for identifying priorities will be the Select Board’s annual rolling strategic planning exercise which, since its start
in 2019, has been structured around the goals of the Vision Plan. Moving forward, the LCP will be the framework to ensure the
alignment of the Select Board’s strategic plan and the community’s vision. In addition to the Select Board, the Planning Board
will play a key role in implementing the LCP, particularly those elements related to land use policy and reforming the Town’s by-
laws so that they become better adapted tools for achieving the vision and policy directions of the LCP. Monitoring the
implementation of the Vision Plan and LCP and reporting to the community have been part of the Vision Planning Committee’s
charge. In 2021, the Committee produced a report on the implementation of the Vision Plan, a simple report that was well
received by citizens and Town government. With the LCP becoming the framework for the Select Board’s strategic plans,
monitoring implementation becomes an integral part of that process on an annual basis. This will include publishing reports on
implementation progress for the Select Board’s internal use and reporting to the public on progress in achieving the
community’s goals.
[add discussion here or in capital facilities section on how capital facilities planning/annual Selectboard strategic planning
process is conducted and informs the annual CIP]
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Appendices
Actions BVPC Meeting August 15 2022
Actions Responsibility Time
Send Sharon T presentation to Select Board Hal Aug 29
Send Form B info to Sharon Rooney for LCP Patricia ASAP
Discuss Timeline with Peter Lombardi Hal and Jon Aug 29
Send any links to plans to Ellen and Jon;
Send to committee list of links to the plans
referred to in LCP
Ellen, Jon,Sharon R Aug 29
Review LCP Actions with public comments
for discussion at next meeting
All Aug 29
Next Meeting Aug 29 All Aug 29