Public Buildings & Services: How Much Does Municipality Need?

Article 2 in a series on the Arlington, MA Master Planning process.   Prepared by Barbara Thornton

Arlington, relative to other communities in the region, is a densely developed residential suburb with some commercial centers and a variety of interesting, walkable neighborhoods spread over a topography of hills, streams, ponds and flat lands. The Town’s property tax revenue pays for about 76% of the cost of operations, a relatively high percentage made more challenging because the Town has little room to add new property tax generating uses such as commercial or industrial development, and state law limits the growth in revenue from property tax to 2.5% a year, less than many of the inflationary costs local governments must cover.

The four goals for the land use section of the Master Plan are to 1) Balance housing growth with other supportive services and amenities; 2) Encourage development that enhances the quality of Arlington’s natural resources and built environment; 3) Attract development that supports and expands the economic, cultural and civic purposes of the commercial areas; 4)Focus mixed use development in Arlington’s commercial areas to support local businesses and provide services for residents. While Arlington has little open land that could be buildable for new tax revenue, it does have commercial areas that could be more densely developed, adding to the community’s revenue base.

Arlington’s topography also suggests some untapped and underutilized amenities for the community. Citizens value the historic character of the town but also want to ensure revenue to support the town’s future. Redevelopment opportunities exist that could enhance characteristics the community cherishes while adding expansion and diversification to the tax base. These opportunities will require an update to the old fashioned, linear approach to land use regulation outlined in the town’s current regulations. Access to open space and recreation amenities like Mill Brook and the Minuteman Bike Way can be enhanced with the right kind of redevelopment program.

A modern approach to land use can also improve the revenue generating opportunities and visual amenities along the Mass Ave. commercial corridor in specific nodes, like Arlington Heights, Arlington Center and Capitol Square in East Arlington, without disrupting the quality of life in adjacent residential neighborhoods. The current zoning map includes 19 different types of districts such as “Town House”, “Industrial”, “Vehicular Oriented Business”, etc. (See page 4, table 2.1 of the revised Land Use Working Paper so see the full list or the current Zoning Map on pg 10-11 of the Existing Conditions report). The zoning plan was essentially an effort to describe what existed at that time, starting in 1975. Some districts were so small, they only had one parcel. Arlington’s current zoning use regulations are unusually restrictive and don’t now match the actual use of land. For example, 49 acres are zoned for industrial development but only 14 acres are actually used for industrial purposes and 20% of the business zoned land is used for residential purposes. Old fashioned zoning tools no longer fit the Arlington of today.

Fortunately, zoning policy has evolved considerably since 1975. New techniques such as “form based codes” give a community the vocabulary to talk about neighborhoods and how the citizens want that neighborhood to look and feel when they are in it. “Mixed Use Development” is another tool that would allow the Town to regulate the use of residential units above commercial store fronts, a contemporary concept for walkable village areas, bringing a more vibrant street life both day and night. New planning approaches also allow a more flexible conversation about density, design elements, massing, transitional areas and other characteristics of the built environment that are hard to address just by dimensional requirements like minimum lot area requirements, side yard dimensions, building height, etc.

As the Town uses the Master Planning process to reconcile the challenges of growth, change, revenue, amenities and quality of life for the future, the community will face the opportunity to rewrite its antiquated zoning and land use regulations. The shared vocabulary provided through the Master Plan will make this easier. Currently Arlington is divided into separate “pods” of singularly defined land uses called “zoning districts” such as commercial, residential, institutional, agricultural and industrial.

Modern land use regulation moves toward language to describe the relationship between buildings and the “public realm” (streets, open spaces, civic places), the form and mass of buildings in relation to each other, and the type and purpose of streets and blocks. According to the RKG consultants’ working paper, “ Form-based codes focus on the form of a place, including the space between buildings that make up the public realm, such as where the building sits on a lot, the frontage, sidewalk, planting area, drainage, and the street itself. Form based codes also consider the scale of blocks in order to create walkable places.
A close look at the Town through the lens of the Master Planning process and using an updated vocabulary to define ways of regulating land use shows many terrific new opportunities for the Town in the future.

Each week, for the next several weeks, we will review the goals, findings and opportunities associated with each of the following sections of the Master Plan.
• Land Use existing conditions
• Economic Development
• Housing
• Open Space
• Historic and Cultural Resource Areas
• Public Facilities and Services
• Natural Resources

Article 7 in a series on the Arlington, MA Master Planning process. Prepared by Barbara Thornton

Reminders of Arlington’s Revolutionary War history are scattered throughout the town.  The town, first inhabited by the Algonquian group of Native Americans, then settled by European colonists in 1635 and incorporated in 1807, took its current name in 1867.  Both formal memorials like the Uncle Sam statue and Cyrus Dallin’s “Menotomy Indian Hunter” statue as well as historic homes and manufacturing areas (Schwamb Mill) are part of the weave of history that gives the town identity.   The history also includes objects, documents, designated landscapes and cemeteries. 

Mill Brook, a Key Heritage Landscape

The heritage landscape of Mill Brook is lost in some places as the waterway passes through the town.  But where it is visible, it is still a reminder of how manufacturing sites like Schwamb Mill used the waterway to move the town into the industrial era.  The Massachusetts Department of Conservation and Recreation (DCR) completed Heritage Landscape Studies in 2006.  DCR identified 63 heritage landscapes in the community and identified Mill Brook as a priority landscape.  Other priorities included:  Battle Road Corridor; the Butterfield-Whittemore house; the Mugar property, Spy Pond and the W.C. Taylor House.   Deciding whether and how to preserve vistas of the historically significant Mill Brook will be one of the tasks of the Master Plan.

Identify and Preserve Historical Properties

Some of the challenges facing the plan involve 1) identifying the historically significant buildings, landscapes and artifacts; 2) determining whether to invest in preserving them for the future community;   3) finding the funding to acquire properties;   4) implementing effective maintenance operations to preserve them.  Ownership ranges from private individuals, through Town, State and non-governmental organizations.  For each form of ownership, there may be different procedures for preserving and maintaining the properties.    Design guidelines for preservation and renovation are available.  In areas designated as “historic districts” or in historic buildings guidelines have more power of enforcement than in places not so designated.

In addition to funding, guidelines and regulatory authorizes, Arlington has several local and regional organizations that provide information and support for historic preservation.   These include:  Arlington Historical Commission (AHC), Arlington Historic District Commission (AHDC), Arlington Preservation Fund, Inc., Arlington Public Library, Arlington Historical Society, Cyrus Dallin Art Museum, Old Schwamb Mill Preservation Trust, Inc. and Freedom’s Way Heritage Association (FWHA).

Master Plan Offers Tools to Help

The Master Plan can better integrate the identification and preservation of historic assets into the ongoing planning process of Town government.

• Guide the development of a historic and archaeological resources inventory.
• Seek Certified Local Government (CLG) status for the Arlington Historical Commission.
• Expand community wide preservation advocacy and education
• Amend the Zoning Bylaw to incorporate historic preservation into the development review process.
• Adopt flexible zoning to encourage preservation.
• Provide support to Historic Districts.
• Maintain and preserve Town owned historic resources.

On November 4, 2014 the Town voted to adopt the Community Preservation Act (CPA) which could set aside Arlington funds for the use of historic preservation projects.

Much to Preserve, Obvious and Subtle

The town values Spy Pond for its beautiful vistas but also for the history of shipping ice from Spy Pond to chill food for hundreds of miles distant.  The Jason Russell house is a well-known historic building, but the farm housing, mill housing, and Lustron homes  along route 2 are more subtle reminders of the town’s long history.  The Jarvis House and Mt. Gilboa have historic significance.  But are they significant enough to warrant continued preservation, investment, maintenance and oversight by the Town government?

Making Choices with Limited Resources

If funds and manpower are limited, does the town set a priority on the most useable properties?  The oldest properties?  The easiest to preserve properties?

If resources are limited, is it enough to just identify and list all properties?  What should be publicly owned?  Privately owned but subject to historic preservation guidelines?

Many of the historic properties are now Town owned.  The “Civic Block”  in Arlington Center contains the Town Hall, the Robbins Library, the Whittemore Robbins House (including cottage and carriage house), a garden that holds the Dallin sculpture and an historic cemetery, the Central School (know housing the Arlington Senior Center) and the Maple St. house.  This town center compound contains both the center of town government today and the buildings preserved from prior eras.  The space is much used.  What, if any, additional investments should go toward maintaining, preserving and reusing the space and facilities in the Civic Block for the use of the community?

Citizens Voices Heard Now

These and many other choices are on the table now for the citizens of Arlington.  The DRAFT Master Plan is available for review and comment .   Comment period closes December 1, about a week away.  The development of the Master Plan represents an historic opportunity for the community to reflect on its history and develop the tools to move into the future.

There will be a public hearing on the DRAFT Master Plan on January 12, 2015 at the Arlington Town Hall.

Article 3 in a series on the Arlington, MA Master Planning process.  Prepared by Barbara Thornton.

A conversation about transportation issues extends well beyond rush hour car traffic congestion. As the Town contemplates its future 20 years from now, should it build wider streets, wider bike paths, wider sidewalks or none of the above? If reducing traffic congestion is a goal, is it possible to develop more job opportunities in town so residents can walk to work? If we value the walking opportunities and we value the lovely trees that make the walk pleasant, what material can we use on the 542,309 linear feet of town sidewalks so the roots won’t break through the walkway and create tripping hazards. Transportation planning can get complicated.

Arlington is fortunate to have a number of active groups, including the Town established TAC (Arlington Transportation Advisory Committee) and the ABAC (Arlington Bicycle Advisory Committee as well as the citizen organized Vision 2020’s Transportation Taskforce and “Walking in Arlington” that look at transportation issues. PTO’s and the School Dept. plan for the safe transit of school children. The East Arlington neighborhood took a long and deep look at the traffic on Mass. Ave., spending a couple of years discussing the proposal to narrow the street in that neighborhood. The Town describes itself as having three “village areas” or neighborhood areas associated with the Town’s three distinct commercial areas: Arlington Center, Arlington Heights and East Arlington.

Discussion about transportation tends to focus on patterns to and from or through each of these areas. In addition, the plan addresses major corridors that bring through traffic from outside the Town. Various modes of transportation including walking, bikes, cars with one passenger, shared passenger cars and opportunities for ridesharing like Zipcar, Lyft or even Hubway for bikes.

On April 10, 2014 the Arlington MA Planning Dept. and RKG Associates sponsored a public discussion on circulation and transportation issues for the Master Plan. Here are the questions that were discussed.

1. How should the Town balance street capacity improvements with expanding multi-modal transportation options?
2. What could the Town do to extend and enhance “walkability” in Arlington Center, Arlington Heights, and East Arlington?
3, Can the Town better manage and enhance parking supply and distribution in the village centers? How: What changes would the community support?
4. Should the Town adopt standards for sustainable thoroughfares and parking areas? What kinds of standards would make sense in Arlington?
5. What can Arlington do to decrease congestion? Which of these ideas would you support?
a. Encourage students to walk or bike to school.
b. Develop employment opportunities in Arlington so that more people can shorten their commute.
c. Encourage safer biking and other alternatives to using private vehicles.
6. If the Town moves toward a higher density, how can transportation planning mitigate any negative impact on residential neighborhood quality of life?
7. Should the Town put more emphasis on providing more parking spaces or minimizing dependence on cars?

The Master Plan’s guiding goals for the Transportation section are

• Enhance mobility and increase safety by maximizing transit, bicycle and pedestrian access and other alternative modes of transportation.
• Manage congestion safely and efficiently by improving traffic operations.
• Manage the supply of parking in commercial areas in order to support Arlington businesses.

More details on the transportation data and issues gathered for the Master Plan can be found here: http://arlingtonma.gov/home/showdocument?id=19822

Upcoming articles in this series include

• Economic Development
• Housing
• Open Space
• Historic and Cultural Resource Areas
• Public Facilities and Services
• Natural Resources

Article 4 in a series on the Arlington, MA Master Planning process.  Prepared by Barbara Thornton .

Most of Arlington’s budget depends on the Town’s tax base. As the cost of services increases, the Town budget must increase. Massachusetts communities are limited in their ability to increase taxes on existing property. Many municipalities have developable land that can add new value to the existing tax base. But Arlington has little developable land left. Retaining and expanding both the employment base and the tax base will require redevelopment on existing sites. Business districts along Massachusetts Avenue and other commercial areas are most likely to see this redevelopment. It will not only expand the tax base, it may give residents an opportunity to work closer to where they live.

The Master Planning process, coordinated through the Arlington Dept. of Planning and Development and assisted by RKG Associates, architects and planners, reported the following in their examination of the Town’s Economic Development issues:

Economic Development Goals:

• Identify areas of “economic underutilization”
• Maximize the buildout potential of commercial and industrial properties
• Support conditions that benefit small, independent businesses
• Improve access to public transit and parking
• Preserve and maintain Arlington’s historic structures and cultural properties to leverage economic development

Key Findings on Economic Development

1. Arlington’s convenient access to employment centers in Boston and Cambridge attracts highly educated and skilled homebuyers and renters. 39% of its labor force comutes to these two cities.
2. Based on recent MCAS and SAT scores, Arlington has a highly ranked school district. This enhances the town’s residential appeal.
3. The Town’s tax rate is lower than most surrounding cities and towns and does not have a separate, higher rate for commercial properties.
4. Between 2008 and 2012 the number of businesses in Town increased by 70. And employment rates recovered, surpassing the pre-recession rates.
5. A diverse base of local businesses covers nearly all industry sectors. Jobs in construction, personal and other services, education, health care, real estate and government make up larger percentages of employment here than in the Boston metropolitan area.
6. Two theaters, Capitol and Regent, draw about 200,000 patrons a year who spend $2.4 million per year at shops and restaurants in these districts.
7. A vibrant local arts community includes both organizations and many self employed residents who work in fine and performing arts. This creative infrastructure helps make Arlington’s commercial districts interesting places to shop, visit and work. And this boosts the use and value of the commercial properties.
8. Wages paid by local employers in Arlington are much lower (-39%) than in Middlesex County for all industries except retail. This contributes to the fairly small percentage of Arlington residents who work in the town.

Town Profile: Redevelopment or Residential Property Tax Pain
Arlington is part of the Boston-Cambridge-Quincy, MA New England City and Town Area (NECTA) Division (Boston Metro), an area that includes Boston and ninety-two communities with employment ties to Greater Boston and the Route 128/I-95 suburbs. It has clear strengths in the Arts, Culture and Tourism sectors of economic development and in redevelopment opportunities to expand commercial and industrial development.

Currently there are 415 commercial and industrial properties in town, a combined total of 193 acres and about 2.5 million sq. ft. of floor space, generating over $6 million in real estate taxes.

Of the 4,400 respondents to the 2012 Arlington Vision 2020 annual survey (included in the Town Census), 67% rated “distinctive commercial centers” as important of very important to the town. Many believe that new economic development, opportunities for start-up businesses and the future of Arlington’s business districts are important for the Town. Analysis shows that by 2020 the current zoning by-law’s height and parking limits will significantly limit reinvestment in many of Arlington’s commercial parcels. This, in turn, will limit the growth in tax base revenue and in employment opportunities.

Most of the recent growth in tax base has been due to the redevelopment of residential property. The rate has fallen but the single family tax bill still remains among the top 50 highest in the state. This could be alleviated with an expansion of the commercial and industrial tax base which has declined from 9% in the 1980’s to just 6% of the Town’s tax base today. In order to restore taxes from commercial and industrial properties to the pre-recession level, the Town would need a plan that required major land use and density changes in the Town’s commercial and industrial districts. Just to regain the same balance of taxes from residential (back to 92% ) and commercial/ industrial (return to 8%), the Town would need to almost double the current amount of commercial floor space, the equivalent of adding another story to each existing commercial structure in town.

Public Discussion on Opportunities Will Shape Future
The meeting convened last April 3, 2014 to discuss the economic development plan included a wide ranging discussion on the need for change in the old density requirements defined primarily by zone and by height limitations. The Town has at least five sites where new commercial or mixed-use redevelopment could occur. The possibilities could enrich the town both financially and in building on its native strengths in arts, tourism and entrepreneurship. More discussions can be expected as the Master Plan is drafted and the Town moves toward a closer examination of its Zoning By-Laws.