Related articles
A report by Mass Housing Partnership’s Shelly Goehring looks at Arlington’s housing development history and policies to understand how municipal action and inaction can contribute to housing inaffordability and can limit the population diversity within a community. The report implies that it has been difficult historically for reputable housing developers to work with the regulatory structure within Arlington to get housing built.
Massachusetts has the nation’s 2nd largest gap in homeownership between households of color (31% own homes) and white households (69% own homes).
See the complete report for more information.



Article 1 in a series on the Arlington, MA master planning process. Prepared by Barbara Thornton
Arlington, located about 15 miles north west of Boston, is now developing a master plan that will reflect the visions and expectations of the community and will provide enabling steps for the community to move toward this vision over the next decade or two. Initial studies have been done, public meetings have been held. The Town will begin in January 2015 to pull together the vision for its future as written in a new Master Plan.
In developing a new master plan, the Town of Arlington follows in the footsteps laid down thousands of years ago when Greeks, Romans and other civilizations determined the best layout for a city before they started to build. In more recent times, William Penn laid out his utopian view of Philadelphia with a gridiron street pattern and public squares in 1682. Major Pierre Charles L’Enfant developed the hub and spoke street plan for Washington DC in 1798. City planning started with new cities, relatively empty land and a “master builder” typically an architect, engineer or landscape architect commissioned by the land holders to develop a visionary design.
In the 1900’s era of Progressive government in America, citizens sought ways to reach a consensus on how their existing cities should evolve. State and federal laws passed to help guide this process, seeing land use decisions as more than just a private landowner’s right but rather a process that involved improving the health and wellbeing of the entire community. While the focus on master planning was and still is primarily physical, 21st century master planners are typically convened by the local municipality, work with the help of trained planners and architects and rely heavily on the knowledge and participation of their citizenry to reflect a future vision of the health and wellbeing of the community. This vision is crafted into a Master Plan. In Arlington the process is guided by Carol Kowalski, Director of Planning and Community Development, with professional support from RKG Associates, a company of planners and architects and with the vision of the Master Planning advisory committee, co-chaired by Carol Svenson and Charles Kalauskas, Arlington residents, and by the citizens who share their concerns and hopes with the process as it evolves. This happens through public meetings, letters, email, and surveys. The most recent survey asks residents to respond on transportation modes and commuting patterns
We all do planning. Starting a family, a business or a career, we lay out our goals and assume the steps necessary to accomplish these goals and we periodically revise them as necessary. The same thing is true for cities. Based on changes in population, economic development, etc. cities, from time to time, need to revise their plans. In Massachusetts the enabling acts for planning and zoning are here http://www.mass.gov/hed/community/planning/zoning-resources.html. The specific law for Massachusetts is MGL Ch. 41 sect. 81D. This plan, whether called a city plan, master plan, general plan, comprehensive plan or development plan, has some constant characteristics independent of the specific municipality: focus on the built environment, long range view (10-20 years), covers the entire municipality, reflects the municipality’s vision of its future, and how this future is to be achieved. Typically it is broken out into a number of chapters or “elements” reflecting the situation as it is, the data showing the potential opportunities and concerns and recommendations for how to maximize the desired opportunities and minimize the concerns for each element.
Since beginning the master planning process in October, 2012, Arlington has had a number of community meetings (see http://vod.acmi.tv/category/government/arlingtons-master-plan/ ) gathering ideas from citizens, sharing data collected by planners and architects and moving toward a sense of what the future of Arlington should look like. The major elements of Arlington’s plan include these elements:
1. Visions and Goals http://www.arlingtonma.gov/home/showdocument?id=19829
2. Demographic Characteristics http://www.arlingtonma.gov/home/showdocument?id=19838
3. Land Use http://www.arlingtonma.gov/home/showdocument?id=19834
Working paper: http://www.arlingtonma.gov/home/showdocument?id=19825
4. Transportation http://www.arlingtonma.gov/home/showdocument?id=19830
Working paper: http://www.arlingtonma.gov/home/showdocument?id=19822
5. Economic Development http://www.arlingtonma.gov/home/showdocument?id=19837
Working paper: http://www.arlingtonma.gov/home/showdocument?id=19828
6. Housing http://www.arlingtonma.gov/home/showdocument?id=19835
Working paper: http://www.arlingtonma.gov/home/showdocument?id=19826
7. Open Space and Recreation http://www.arlingtonma.gov/home/showdocument?id=19832
Working paper: http://www.arlingtonma.gov/home/showdocument?id=19824
8. Historic and Cultural Resources http://www.arlingtonma.gov/home/showdocument?id=19836
Working paper: http://www.arlingtonma.gov/home/showdocument?id=19827
9. Public Facilities and Services http://www.arlingtonma.gov/home/showdocument?id=19831
Working paper: http://www.arlingtonma.gov/home/showdocument?id=19823
10. Natural Resources
Working paper: http://www.arlingtonma.gov/home/showdocument?id=19824
The upcoming articles in this series will focus on each individual element in the Town of Arlington’s Master Plan.
Why Is This Our Issue & What Should We Do About It?
(presented by Adam Chapdelaine, Town Manager, to Select Board on July 22, 2019)
Overview

Since 1980 the price of housing in Massachusetts has surged well ahead of other fast growing states including California and New York. While the national “House Price Index” is just below 400, four times what an average house might have cost in 1980, a typical house in Massachusetts is now about 720% what it was in 1980. Median household income in the state has only increased about 15% during the same period. No wonder people in Arlington are feeling the stresses of housing costs if they want to live here and are feeling protective of the equity value time has provided them if they bought years ago.
In response to concerns about zoning, affordable housing and housing density, the Town joined the “Mayors’ (and Managers’) Coalition on Housing” to address these growing pressures. This 12 page slide deck presentation outlines the key data points, the number of low and very low income households in Arlington, the rate of condo conversion that is absorbing rental units, etc.
Solutions are offered including:
• Amendments to Inclusionary Zoning Bylaw
• Housing Creation Along Commercial Corridor – Mixed Use & Zoning Along Corridor
• Accessory Dwelling Units – Potential Age & Family Restrictions
• Other Tools Can Be Considered That Are Outside of Zoning But Have An Impact on Housing
Chapdelaine’s suggested next steps are:
• Continued Public Engagement
• Town Manager & Director of DPCD Meet with ARB
• Select Board & ARB Hold Joint Meeting in Early Fall
• ARB Recommends Strategies to Pursue in Late Fall/Early Winter
The Select Board approved the suggested next steps and a joint ARB/ Select Board meeting should be scheduled in the near future.
Note from Reporter: As a community, Arlington has long prided itself on its economic diversity. With condo conversions, tear downs leading to “McMansions”, higher paid workers arriving in response to new jobs, etc., Arlington is at great risk of losing this diversity that has long enriched the community. Retirees looking to downsize and young people who have grown up in Arlington looking for their first apartment are finding it impossible to stay in town. Shop keepers and town employees are challenged to afford the rising housing costs. With a reconsideration of zoning along Arlington’s transit corridors, Arlington NOW has an opportunity to create new village centers, like those recommended in the recent STATE OF HOUSING report. These village centers along our transit corridors could be higher, denser but also offer the compelling visual design and amenities desired by people who want to walk to cafes, shops and public transit.
(This post was originally an email message, discussion open space changes proposed by an Affordable Housing article during the Arlington, MA’s 2019 town meeting. It’s also a decent description of our town’s open space laws.)
Sorry this turned out to be a long post. Our open space laws are kind of complicated.
Arlington regulates open space as a percentage of gross floor area, rather than as a percentage of lot area. Let me give a concrete example: say we have a-one story structure with no basement. It covers a certain percentage of the lot area, and has an open space requirement based on the gross floor area (i.e., the interior square footage of the building).
Now, suppose we want to turn this into a two- or three-story structure. The building footprint does not change, and it covers exactly the same percentage of the lot area. However, the open space requirements double (if you’re doing a two-story building), or triple (if you’re doing a three story building). If that quantity of open space isn’t on the lot, then you can’t add the stories.
For this reason, I’d argue that our open space regulations are primarily oriented to limiting the size of buildings. You really can’t allow more density (or taller buildings) without reducing the open space requirements. Alternatively, if the requirements were based on a percentage of lot area, we probably wouldn’t need a reduction. (Cambridge’s equivalent is “Private Open Space”, and they regulate it as a percentage of lot area.)
The other weird thing about our open space laws is that we define “usable open space” in such a way that it’s possible to have none. (Usable open space must have a minimum horizontal dimension of 25′, a grade of 8% or less, and be free of parking and vehicular traffic). I live on a nonconforming lot that does not meet these requirements, as do the majority of homes in my neighborhood.
Suppose I wanted to build an addition, which would increase the gross floor area. With the non-conformity, I’d have to go in front of the ZBA and show that the current lot has 0% usable open space, and that the house + addition produces a lot with 0% usable open space. Because 0% = 0%, I have not increased the nonconformity, and would be able to build the addition, provided that all of the other dimensional constraints of the bylaw are satisified. Although this isn’t directly related to Article 16, it’s an amusing side effect of how the bylaw is written.
Finally, roofs and balconies. Section 5.3.19 of our current ZBL allows usable open space on balconies at least six feet wide, and on roofs that are no more than 10′ above the lowest occupied floor. We allow 50% of usable open space requirements to be satisfied in this manner.
The relevant section of Article 16 would create a 8.2.4(C)(1) which includes the language
Up to 25% of the landscaped open space may include balconies at least 5 feet by 8 feet in size only accessible through a dwelling unit and developed for the use of the occupant of such dwelling unit.
Article 16’s incentive bonuses strike the usable open space requirement, and double the landscaped open space requirement. With only landscaped open space, 5.3.19 doesn’t apply (it only pertains to usable open space). The language I’ve quoted adds something 5.3.19-like, but for landscaped open space. I say 5.3.19-like because it has a 25% cap rather than a 50% cap, and requires eligible balconies to be at least 5’x8′, rather than 6′ wide.
Here are a few pieces of supporting documentation:
- definitions of landscaped and usable open space from our ZBL
- a diagram to illustrate the difference between landscaped and usable open space.
- The text of section 5.3.19 (which is referenced by the diagram)
- the main motion for Article 16
This 102 page document is the most recently revised set of recommendations by the Town of Arlington’s Redevelopment Board. The report takes into consideration the comments and information provided over the last few months’ public hearing process. It also incorporates a citizen petition which strengthens the case for increasing permanent affordable housing with the passage of these zoning related Articles. Town Meeting convenes on April 22, 2019.
Beginning last July, 2020, the Town of Arlington and community groups in the town are sponsoring a number of webinars and zoom conversations addressing the need for affordable housing programs in Arlington. Several factors contribute to the Arlington housing situation: diversity of housing types, prices, diversity of incomes, availability of housing subsidies, rapid growth in property values that greatly exceed the rate of growth of income.
But racism, both historic and current, continues to stand out as a significant force contributing to the difficult housing situation.
One of the first public discussion in the Town on this subject was organized by Arlington Human Rights Commission (AHRC) on July 8, 2020. View it here:
A study by Elise Rapoza and Michael Goodman shows that new housing construction in MA does not have an adverse affect on municipal or school budgets. And when it might, state funding covers the difference. This study contradicts the often heard argument against new housing development, especially multi-family housing, because it, the argument claims, it will have a negative fiscal impact on communities.
In the aggregate, development of new housing offers net fiscal benefit to both municipalities and the state. Additional analysis validates a second study which found that increased housing production does not predict enrollment changes in Massachusetts school districts. In the new study, a distinct minority of municipalities did incur net fiscal burdens—burdens that the net new state tax proceeds associated with the development of new housing are more than sufficient to offset.
In 2018, the planning department released a study of Demolitions and replacement homes. Page 4 contains a bar chart showing the relative sizes of Arlington’s zoning districts:
The folks in Arlington’s Department of Planning and Community Development were kind enough to provide me with a copy of the underlying numeric data. I’ll present that shortly, but for the moment, I’d like to make a proposition about zoning maps: that they are budgets given in acres rather than dollars. A zoning map takes a finite pool of resources (land) and allocates it among specific set of concerns (land uses).
Here’s the size of each district, along with the percentage of land that it accounts for.
Zone | District Name | Acres | %total |
B1 | Neighborhood Office | 25.89 | 0.79% |
B2 | Neighborhood Business | 16.92 | 0.52% |
B2A | Major Business | 22.48 | 0.68% |
B3 | Village Business | 28.43 | 0.87% |
B4 | Vehicular Oriented Business | 29.91 | 0.91% |
B5 | Central Business | 10.48 | 0.32% |
I | Industrial | 48.96 | 1.49% |
MU | Multi-use | 18.26 | 0.56% |
OS | Open Space | 270.99 | 8.25% |
PUD | Planned Unit Development | 16.16 | 0.49% |
R0 | Large Lot Single-Family | 237.85 | 7.24% |
R1 | Single-family | 1,777.64 | 54.14% |
R2 | Two-family | 619.66 | 18.87% |
R3 | Three-family | 8.25 | 0.25% |
R4 | Townhouse | 19.49 | 0.59% |
R5 | Low-density Apartment | 63.76 | 1.94% |
R6 | Medium-density Apartment | 49.10 | 1.50% |
R7 | High-density apartment | 18.65 | 0.57% |
T | Transportation | 0.76 | 0.02% |
TOTAL | 3283.65 | 100.00% |
I’m going to roll these up into four categories
- Residential (the “R” districts)
- Commercial (the “B” and “I” districts)
- Open space (the “OS” district)
- Other (the MU, PUD, and T districts)
Use | Acres | % total |
Commercial | 183.08 | 5.58% |
Residential | 2794.40 | 85.10% |
Open Space | 270.99 | 8.25% |
Other | 35.18 | 1.07% |
Total | 3283.65 | 100.00% |
I’d like to point out several things about this summary.
First, 85% of Arlington’s land is residential and 61% is exclusively set aside for single-family homes. When our zoning laws were re-written in the mid-1970’s two substantial goals were (1) limiting the potential for population growth, and (2) making Arlington a “traditional family town” (which I interpret to mean “a place for families with children”). The preference for single-family homes has arguably made those goals easier to achieve; single-family homes mean fewer homes per lot, and they offer enough floor space and bedrooms for families with children. I think we’ve met those objectives. Arlington’s population dropped from 54,000 in 1970 to around 45,000 today, we have well-respected public schools, and our single-family homes have a lot of utility for growing families. We’re a great town for raising kids. Our residential taxes are can be high, but I’d argue this is a design feature rather than a defect.
Second, 8.25% of our land is “Open Space”, aka “parcels under the jurisdiction of the Park and Recreation Commission, Conservation Commission, Arlington Redevelopment Board, Massachusetts Department of Conservation and Recreation, or Massachusetts Bay Transportation Authority (MBTA)”. It’s public land, and it’s a great asset. For better or worse, our Opens Space districts generate no tax revenue.
Third, 5.6% of the town’s land is zoned for commercial use. This is the set of land and buildings that can make up Arlington’s commercial tax base. When I moved to town in 2007, our commercial tax base was 5.4%; that figure increased for a few years (after the 2008 recession), eventually settling back down to 5.4% in 2019. With 5.6% of land zoned commercially, a 5.4% commercial tax base doesn’t strike me as unreasonable. I suspect the goal was to have enough businesses to provide local amenities, but without turning the town into a commercial center.
Finally, the “Other” category can be divided up three ways:
- The Multi-Use district is the former site of the Symmes hospital. It used to be known as the Hospital District, and is currently home to Arlington 360, a large apartment complex.
- The Planned Unit development district is also know as the Mugar Property. In the early 1980’s, David Mugar tried to develop it as office and retail space. Today, Oaktree Development is petitioning to develop the site as apartments and townhouses.
- Finally, the Transportation district is “bus terminals, open space, and the Minuteman Bikeway”; it’s a very small portion of the town’s land.
So that’s our land budget: 85% residential, 8.25% public open space, 5.6% commercial, and 1% other. This is a preference for how the land is used, and a preference for how the local government is funded (Arlington’s main source of income is property taxes).
A common budgeting exercise is to take an existing breakdown and ask “what if we allocated things differently”? For the sake of discussion, let’s say we wanted 50% of the town to be Open Space (i.e., publicly-owned and publicly-accessible green space). This might be driven by a desire for more trees and wooded areas, better stormwater management, climate resilience, heat island reduction, and so on. The conceptual change is easy: take half the town, pick it up, and set it down on the other half. Done [1].
Stacking half the town on top of the other means we’d have enough room to fit all of the homes and businesses that we currently have. The buildings would be taller, there’d likely be far fewer single-family homes, and there’d be a ton of green space. As with any budget, there’s a tradeoff.
Or suppose we wanted to increase the town’s commercial tax base. This topic surfaces from time to time, particularly when the first set of property tax bills goes out during a fiscal year. Commercial property taxes are assessed in much the same way as residential: the assessments are based on the value of land and buildings; dollars and square feet [2]. One can increase dollars (i.e., when a commercial property is sold above its assessed value), one can increase square feet (by allowing larger buildings, or allowing some non-commercial land to take on commercial uses), or one can try to find a way to reduce the total assessed value of residential properties. If none of those choices are appealing, then you probably won’t get a higher commercial tax base. Again, budget tradeoffs.
In conclusion, my goal has been to get people thinking about Zoning Maps as a form of budget. Arlington’s capital and operating budgets have changed over time, as has our zoning map. I’d like us to think of what we might do differently in the future.
[1] In reality, the implementaton details would probably be hideously complex; but the concept is simple.
[2] There’s also a “Personal” component to commercial taxes, which involves equipment and supplies used in conducting a business. This is mere sliver of Arlington’s total tax revnue.