HOUSING

Credit: Jennifer Lutke

Credit: Jennifer Lutke

Credit: Jennifer Lutke INTRODUCTION

Over the past 300 years, Brookline has evolved from an agricultural community and streetcar to an incredibly diverse community that provides a wide-range of housing types and lifestyle choices from the mixed use, transit-oriented neighborhoods near Coolidge Corner, Brookline Village, and Washington Square to the suburban neighborhoods of South Brookline.

Brookline offers a high quality of life to its residents. This report explores the current state of housing in This, in combination with its close proximity and Brookline and defines preliminary issues and oppor- transit connections to and Cambridge, creates tunities related to our housing stock, policies, and an exceptionally desirable community to live in. programs. The report also provides a brief back- Brookline, which consists of roughly six square miles ground on housing in Brookline to foster an under- of land, is home to approximately 54,700 people of standing of where we have come from, in terms of diverse backgrounds, incomes, and lifestyles, includ- evolution of overall development, as well as the vari- ing families, young professionals,and elderly. ous programs and regulations related to housing.

Background of Brookline Housing Development

Brookline, which began as an agricultural community for veterans after World War II. As the BHA contin- in the 17th century, became a streetcar suburb of ued to develop housing, it added developments tar- Boston during the mid-19th century. At this time, geted to elderly housing to the mix. Brookline’s development opportunities were enhanced by the provision of strong public transit From the late 1950s to the 70s, Brookline engaged in with direct linkages to Boston. urban renewal of the “Farm” and “Marsh”areas of Brookline Village (on Route 9), adding approximate- By 1900, most of the remaining farmland, particular- ly 1300 units including Brooke House, and public ly in North Brookline, had been subdivided into resi- and privately subsidized housing. In 1970, Town dential developments with density that was supported Meeting adopted rent control, which at one point reg- by the existing mass transit linkages. The early 20th ulated approximately 11,000 rental units. In 1991, century was marked by the growth of corridors that Town Meeting passed legislation to phased out rent were directly served by mass transit, such as the control, and, in 1994, the enactment of State Beacon Street, Harvard Street, Washington Street, Referendum Question Nine eliminated rent control in Boylston Street (Route 9) and Commonwealth Massachusetts. Avenue corridors. Today, Brookline’s mix of housing types and densi- In the early 20th century, Brookline began regulating ties creates a development pattern with defined and the use of land with its first Zoning By-law, adopted distinct neighborhoods. Figure 1 displays Brookline’s in 1922. Brookline’s early zoning created districts residential land use pattern and illustrates the variety for residential and business uses, and established and pattern of housing densities throughout the town, simple dimensional requirements such as minimum with most of the multi-family housing located in yard setbacks, maximum height, and building cover- North Brookline and most single-family housing con- age (coverage of building footprint on lot). centrations located in South Brookline. Many of the mixed-density neighborhoods are within close walk- By the mid-20th century, Brookline's citizens recog- ing distance to the the MBTA’s Green Line and nized the need to compensate for the lack of diverse Brookline’s main commercial areas. housing that the market was providing by establish- ing the Brookline Housing Authority (BHA) in 1948. The BHA initially focused on the need for housing

Credit: Jennifer Lutke Fuller Street,2000

80 report 5 HOUSING BROOKLINE PLAN 2000-2010 EXISTING RESIDENTIAL LAND USE FIGURE 1

BROOKLINE PLAN 2000-2010 report 5 HOUSING 81 EXISTING HOUSING

TRENDS IN POPULA- Brookline Housing Units 1960-1990 balanced by the inception TION AND HOUSING (Source: 1960-1990 US Census) of condominium owner-

According to the U.S. 30000 ship and the development

25000 Census, there were approx- 25,353 of condominiums, princi- 24,369 imately 54,700 residents in 20000 23,213 pally through the conver- 19,637 Brookline in 1990. While 15000 sion of rental properties. the total population was no 10000 Condominium units, 5000 greater than in 1960, there # of Housing Units which numbered 2,074 in 0 was a 29% increase in 1960 1970 1980 1990 1980 and 6,299 in 1990, housing units and a reduc- Year increased at a slower rate tion in the average house- during the past decade to CHART 1 hold size from 2.76 to 2.17. 7,743 in 2000. By 1990, The greatest increases in the housing stock were the percentage of renters to total households had fall- made between 1960 and 1970, with more modest en to 57%, a proportion which appears to be holding increases through 2000. A steady, despite the continued conservative estimate based 1960 Units conversion of units. That on US Census data and by Housing Type the proportion of renters is Brookline Building (Source: US Census) still as high as it is may be Department records, indicates explained by the rate at Single-Family >5 units that an average of approxi- 30% which condominiums, them- mately 50 units per year have 35% selves, are used for rental. been added to our housing In 1990, 31 % of condomini- stock over the last decade ums were rented, and these (including new construction, Two-Family households represented 14 % 3-4 Family 13% as well as additions and con- 22% of all renters. versions). The distinction between In 1990, Brookline continued CHART 2 ownership and rental inven- to be a diverse community. tory is an important one, as The number of foreign born 1990 Units rental units traditionally by Housing Types persons, which comprised (Source: US Census) have housed smaller house- 20% of the population in holds of lower income. For Other Single-Family 1960, was up to 21 % in 1% example, while in 1990, 21% 1990. In fact, in the 1990's, >10 units median income in Brookline 38% the Brookline public schools was 123% of the state aver- were serving children from at Two-Family age, there was a great differ- 10% least 63 different countries; 50 ence between the incomes of 3-4 Family 5-9 units 15% distinct languages were spo- 15% owners and renters. At a

ken in their households. * US Census categories differ from Brookline Assessor categories (seen in year 2000 chart). time when about 13% of the rental stock was subsidized Brookline's non-white popu- CHART 3 and a good portion of the lation during this period balance was still subject to increased from .5% to 12.6% 2000 Units rent control, the median by Housing Types (or 14.8%, if including the (Source: Brookline Assessor) income of renters was Hispanic population). During $38,817 compared to the Mixed Use the 1970's and 1980's, there Lodging/Dorm/Inn (013, 019, 031, 091) median income of owners, at (121, 122) 4% appeared to have been a 2% Single-Family $96,710. And, not surpris- (101, 109) redistribution of population, 17% ingly, because rental units >8 units with a decrease in several age (112, 907, 908) Two-Family (104) tend to be smaller, the medi- groups, including senior citi- 48% 11% an number of household Three-Family (105) 4-8 units (111) zens (to slightly over 15% of 10% members was 1.6 in renter 8% the population), while adults households, compared to 2.2 between 25 and 44, and chil- * Assessment Classification Codes are located in parenthesis next to each housing type. among owner occupants. dren under five, had When the 2000 census is CHART 4 increased. Forty eight percent available, the most dramatic of all households were classified as families; 39% changes in Brookline's demographic profile are likely were persons living alone; and 13% were households to be noted in the renter population. which included unrelated individuals. Charts 2, 3 and 4 show the The diversity of Brookline's 2000 Buildings changing makeup of the population has reflected both by Housing Types Town's housing stock. (Source: Brookline Assessor) its mix of housing type and Lodging/Dorm/Inn Between 1960 and 1990, (121, 122) >8 units tenure. In 1960, 67% of all 4-8 units (111) 0% according to the U.S. Census, (112, 907, 908) Mixed Use 5% units were occupied by 4% (013, 019, 031, 091) the Town's housing units in 1% renters. The modest growth Three-Family (105) one through four unit build- 11% Single-Family of rental units between 1960 (101, 109) ings had declined by about and 1990 - from 12,757 to 60% 1100 units or 8%. In 1960, Two-Family (104) 14,853 - reflected both the 19% these small structures con-

construction of many mid- * Assessment Classification Codes are located in parenthesis next to each housing type. tained 65 percent of the and high-rise affordable and Town's units; in 1990, they market rate rental buildings, CHART 5 comprised only 46 percent.

82 report 5 HOUSING BROOKLINE PLAN 2000-2010 According to Assessing Land Area per Zoning District 1991. According to Brookline Department records 48% of the Source: Brookline GIS GIS data, approximately 320

Town's housing units are now in General dwelling units were added to the Business Office buildings of nine or more units. 3.5% housing stock as a result of new 0.3% Local Business Industrial construction in the past 10 years 1.3% 0.6% LAND USE PATTERNS Multi-Family (not including additions to exist- 12.6% Single-Family Charts 5 and 6 show that single- 70.8% ing buildings and not adjusting Two-Family family houses still comprise 60% 10.9% for demolitions). New residential of the Town's residential buildings, development was generally scat- and our single family zoning dis- tered throughout the town. tricts occupy 71% of the Town's CHART 6 land. In fact, 75 % of all the land zoned for residential use is zoned for single-family MARKET PRICE TRENDS residences. According to Brookline Assessor’s data Brookline’s strong housing market reflects both checked against staff field observations, approxi- regional trends and the particular attractions of the mately 2% of land in Brookline is considered vacant Town. In 1996, when the last systematic study of (meaning undeveloped parcels that rents was done by the Brookline are not parks, conservation areas, Housing Authority, a two-bed- or recreation facilities). Median Sales Prices in Brookline room apartment rented for $1,154 by Property Type as reported by per month. Anecdotally, a typical Figure 2 shows the overall densi- Warren Information Services/Banker & Tradesman two bedroom apartment now rents for sales between $25,000 and $1 million ties allowed by the Zoning By-law 1994-1999 between $1600 and $3000 per in terms of lot size for single and month, and units do not remain two family districts, and floor area vacant. Sales information from ratio for all other districts (multi- Warren Information Services, family and business districts). $650,000 Banker & Tradesman (Chart 7) Figure 3 shows the proximity of $600,000 provides a clearer picture of mar- multi-family and business districts $550,000 ket trends. During the five-year $500,000 to the MBTA transit lines. There $450,000 period between 1994 and 1999, is a strong correlation between $400,000 the median sales price of condo- Brookline’s higher density zones $350,000 miniums priced under $1 million (multi-family and business dis- $300,000 increased 62%, a single-family $250,000 tricts) and the availability of tran- $200,000 home, 69%; a two-family home, Median Sales Price sit. $150,000 75%; and a three-family building, $100,000 86%. NEW DEVELOPMENT $50,000 $- Figure 4 shows the location and overall size of new residential Year of Sale development in Brookline since CHART 7

Affordable Housing

Brookline has long supported the development of units are targeted to households who meet specific affordable housing. Through the 1970's, this was eligibility guidelines. Income eligibility is scaled to achieved on the initiative of the Town mainly through the median income of the metropolitan area, a stan- the use of urban renewal and the construction of pub- dard which is updated annually by the U.S. lic housing; and on the initiative of private investors, Department of Housing and Urban Development. through the development of publicly subsidized pri- Affordable units make up between 7% and 8% of the vate-owned housing. Because of changes in both Town's housing stock. However, because almost half Federal programs and market conditions, and because of the inventory lacks permanent affordability restric- the debate over rent control dominated discussion tions, at the current pace of affordable housing devel- around affordable housing, there were few substantial opment - approximately 15 units per year - the inven- initiatives by the Town during the eighties. In addi- tory of affordable units could decrease to 5% of all tion to providing home purchase and rehabilitation units within the next 20 years. assistance, by the end of the eighties, the Town embraced inclusionary zoning as a tool for affordable The largest category of affordable housing is the housing, inventory owned and mainly operated by the Brookline Housing Authority (BHA), which is gov- CURRENT INVENTORY erned by an independent public board. The BHA Brookline currently has an inventory of 1810 afford- currently administers 921 units, subsidized by either able units controlled through regulation on the rentals the State or the Federal government. Half of these or resale of units. Not included are about 120 house- units - 458 - are in seven mid- and high-rise build- holds which, as of May, 2000, were renting privately- ings which serve the elderly, as well as some handi- owned apartments with the help of federal Section 8 capped residents. Another 432 units are in "family" certificates administered by the Brookline Housing developments. Thirty-one units are located in three Authority, and 31 homeowners who purchased their small residences which are operated by private non- units with Town assistance. profits for special need populations.

An affordable unit is one which is financed in such a While housing developments owned by public hous- way as to reduce occupancy costs, so that typical res- ing authorities have the greatest expectation of "per- idents are paying no more than approximately 30% manent" affordability, and are expected to depend of their income on gross housing costs. Affordable upon their respective sources for funding for operat-

BROOKLINE PLAN 2000-2010 report 5 HOUSING 83 ing subsidies and modernization, these sources often businesses. In 1997, following the report of a are not adequate. The Town has a history of partner- Moderator's Committee on Housing, the development ing with the BHA by contributing Federal Community of affordable housing was added to the EDAB mis- Development Block Grant (CDBG) funds to capital sion, and the position of Housing Development improvements, principally for landscaping, but also Officer was created to encourage the development of for energy efficiency and wheelchair accessibility. new, and preservation of existing affordable housing opportunities. The second largest category of affordable housing is the inventory of privately-owned, publicly-subsidized In June 2000, the Board of Selectmen established a housing owned by for-profits and non-profits, and Housing Opportunities Task Force with a goal to seek totalling 878 units. Most of these are located in six out resources for affordable housing- properties, fund- large developments built between 1965 and 1977, and ing and development capacity - to achieve new these include the so called "expiring use projects". affordable housing development. A Preservation There already has been an attrition of 278 units at Committee was also established to seek ways to pre- four developments which were originally offered at serve existing affordable housing. below market rents. FUNDING/PROGRAMS More recently, units with affordability restrictions The Town's major current sources of funding for have been added through small developments, includ- affordable housing come from the federal HOME pro- ing the acquisition and renovation of lodging houses gram, through which the Town receives approximate- by non-profit and for-profit developers, yielding 93 ly $360,000 per year, the Housing Trust (see below), units. Finally, there are 40 units developed or under and repayments of loans to a revolving fund initially development under the Town inclusionary zoning funded through CDBG monies. As stated previously, (Section 4.40).These include 11 condominiums, 17 the CDBG program also has been used to support assisted living units, and 12 rental units. Despite the capital improvements at BHA developments. addition of about 158 newly affordable units between 1990 and 2000, there has been a net loss of 120 Town housing programs have recently been affordable units. redesigned in order to assure that the investment of Town money achieves the greatest leverage, and that BOARDS AND COMMITTEES funding promotes the longest period of affordability Town Meeting established the Housing Advisory appropriate to the use of the funds. The housing pro- Board (HAB) in 1987 as successor to the Town's grams include home-buyer assistance, which has Affordable Housing Committee. The HAB consists assisted two to five home buyers a year, emergency of seven members and is charged with addressing rehabilitation and lead paint abatement, and housing affordable housing issues and opportunities in development by which the Town assists non-profits Brookline, including recommendations with regard to and for-profits to develop affordable units. The Town use of Federal funding, implementation of the Town's also works closely with developers who are subject to inclusionary Zoning, and use of the Housing Trust. Section 4.40 to encourage the development of on-site affordable units, to structure the rental and sales In 1995, the Town's first Economic Development prices and agreements, and to assure outreach to eligi- Advisory Board (EDAB) and Officer were appointed ble Town residents most at risk of displacement. to promote economic growth and support existing

Zoning

Brookline's Zoning By-law affects the development Section 5.21 currently allows for increases in the of housing by establishing regulations that control maximum allowed floor area ratio for projects that the following elements: provide certain specified public benefits, including 1. location of uses through various types of zoning affordable housing, open space, public parking, and districts (residential, business, office, and industrial), street improvements. 2. development density through limits on number of units on a lot, lot sizes, and floor area ratios (ratio of In 1987, the Town of Brookline adopted Section 4.40 building size to lot size), of its Zoning By-law, implementing inclusionary 3. placement of buildings and parking on a lot zoning. There have been changes to the By-law since through various dimensional regulations, particularly that time, including a reduction of the threshold for yard setbacks, open space, and parking requirements, required contribution from 10 to 6 units and 4. and the appearance of buildings through dimen- increased emphasis on the provision of units on-site. sional regulations (such as maximum height) and design review. During the 15 years between 1987 and 2002, inclu- sionary zoning is expected to result in an estimated Figures 5-7 compare the actual residential land use 55 units: 31 affordable units are currently occupied; and densities to that allowed by zoning. These fig- five units are under construction; four units are per- ures show where the number of units per lot is more mitted; and about 15 potential units are in the or less than allowed (Figure 5), where lot sizes are pipeline. The inclusionary zoning requirements also both smaller than allowed (Figure 6), and where lot are expected to generate approximately $3.6 million sizes are larger than allowed (Figure 7). in payments of cash made in lieu of providing units. The Housing Trust received its first payment at the AFFORDABLE HOUSING end of 1999; about $1.8 million has been received to The Zoning By-law also includes a variety of mecha- date. The first allocation of Housing Trust funds was nisms intended to facilitate the creation of affordable made to an affordable housing project in January, housing, such as the Public Benefit Incentives and 2001 - a bridge loan against federal HOME dollars to Affordable Housing Requirements. Adopted in 1962 permit the local non-profit Brookline Improvement and subsequently amended at least eight times, Coalition to purchase the building.

84 report 5 HOUSING BROOKLINE PLAN 2000-2010 RESIDENTIAL ZONING FIGURE 2

BROOKLINE PLAN 2000-2010 report 5 HOUSING 85 FIGURE 3 TRANSIT LINES & ZONING

86 report 5 HOUSING BROOKLINE PLAN 2000-2010 NEW RESIDENTIAL DEVELOPMENT FIGURE 4

BROOKLINE PLAN 2000-2010 report 5 HOUSING 87 FIGURE 5 ACTUAL VS. ZONED RESIDENTIAL USES

88 report 5 HOUSING BROOKLINE PLAN 2000-2010 LOTS BELOW ZONED LOT SIZE FIGURE 6

BROOKLINE PLAN 2000-2010 report 5 HOUSING 89 FIGURE 7 POTENTIALLY SUBDIVIDABLE PARCELS

90 report 5 HOUSING BROOKLINE PLAN 2000-2010 ISSUES & OPPORTUNITIES

The residential make-up of an area, more than any other component of the built envi- ronment, determines the character of the community. The variety of residential land- scapes, the location, the type, and the cost of an area's housing stock will ultimately determine who lives there, how they interact, and if it is, in fact, a "community".

Diversity & Affordability 1 An urban community located within minutes of the family would have needed an income between central city, Brookline's diversity has long been one $90,000 and $100,000 to purchase a median priced of its most valued characteristics. From bricklayers condominium. to bankers, cooks to corporate executives, the diversi- ty of the Town's population has reflected its varied While information is less available for rental housing, housing stock, from modest triple-decker flats to glo- if rentals for two bedroom units tend to be within the rious mansions. In its schools, which have launched range of $1600 to $3000 (including utility bills, etc.), generations of immigrants, students have learned not the incomes required to lease these are $68,000 to only their ABC's, but an appreciation for other classes $124,000; and move-in costs - from two to four and cultures. The Town's ability to draw from its months rent - would range from $3,200 to $12,000. own population to patrol its streets, to teach its chil- Anecdotal information is that families and the elderly dren, and to operate its commercial establishments are increasingly being priced out of the private rental has made Brookline more than just a suburb, it has market, and replaced by households of unrelated made it a community. young persons.

Brookline's strength has become its Achilles heel: a At this rate, Brookline will continue to become a very well-managed Town with an attractive housing stock, different community than it is today. Displacement a diverse population, a strong sense of community, of lower-, moderate-, and middle-income renters will and a convenient proximity to downtown has fueled a continue. And many of the existing lower- and mid- real estate market which is putting these very quali- dle-income home owners are likely to be replaced by ties at risk. households with considerably higher incomes and assets than the sellers had when they moved to In addition, Brookline's historic diversity has been Brookline. Families are justifiably concerned about eroded by the loss of rental units through condomini- the ability of their children to live in the community um conversion and the end of rent control. Finally, where they grew up, and older renters are concerned since half of the Town's affordable housing stock is with being able to age in their own community. owned by private investors, the expiration of controls on that housing will significantly erode the inventory The Town's housing policy is directed to preserving over the next 20 years. existing regulated affordable housing. It also aims at identifying existing rentals which come on the market Despite the lack of current and which may be acquired Comparison Between information on income trends, SALES PRICE with the intention of achieving the change in the composition a "Typical" 3-Person Family Can Afford affordable or mixed-income and the of Brookline's population can Median Sales Price housing. To date, this effort has be inferred by changes in buy- of a 2-Bedroom Condominium focused on lodging houses, but, ing power over the past decade. in the future, could include larg-

This is illustrated in Chart 8, $325,000 er, conventional rental proper- using the ability to purchase a $300,000 ties as well. condominium in Brookline as a $275,000 gauge for affordability in the $250,000 The scarcity of land available $225,000 market as a whole. Between $200,000 and suitable for development or 1991 and 2000, the median $175,000 redevelopment is a particular price of a condominium in $150,000 opportunity: it challenges the $125,000

Brookline increased by 120% Price of a Condominium Town to identify publicly- $100,000 (from $133,000 to $292,000) $75,000 owned properties and begin the while the median income in the $50,000 public discussion concerning Boston metropolitan area for a $25,000 alternate compatible uses; to $0 3 person family increased by 1991 1992 1993 1994 1995 1996 1997 1998 1999 2000 identify privately-owned prop- 30% (from $45,000 to Year erties and work with property $59,000). Buying power of a "typical" 3-person family owners and potential developers Median sales price of a 2-bedroom condominium towards the goal of mixed- Looked at from a different per- CHART 8 income housing. It also chal- spective, in 1991, a family of 3 lenges the Town to make maxi- with the median metro area income ($45,000) could mum use of its zoning powers to shape the use of afford to pay $116,000 for a condo in Brookline, or land in the public interest, which includes maintain- 88% of the median price ($133,000). The family ing the diversity of the community. would have needed $52,000 to purchase a median priced condominium. In 2000, a family of three with the current median metro area income ($59,000) could afford to pay $148,000 for a condominium in Brookline, 51% of the median price ($292,000). The

BROOKLINE PLAN 2000-2010 report 5 HOUSING 91 2 Density By Design An appropriate density of strategically-located hous- Brookline, the current level of density varies from the ing can strengthen the livability of our community in density permitted through the Zoning By-law (see many ways. Compact residential development locat- Figures 5 & 6). This could provide an opportunity to ed within walking distance of our commercial centers create effective zoning incentives for various public supports those areas, and, in turn, supports the diver- benefits, including affordable housing (see #5 Zoning sity of services available to all residents. Residential to follow). development near mass transit lines fosters transit rid- ership, and this, in combination with walkable and Furthermore, “density by design”, as the current trend bikable commercial areas, can reduce automobile has been called, seeks to achieve density in ways that dependency - lessening traffic congestion and envi- reinforce historic development patterns and, where ronomental pollution. appropriate, encourage open space and other public amenities. There are many opportunities in Brookline Ultimately, in communities with high land costs and to provide additional housing: housing prices, density is a critical tool to achieve 1. Convert historic buildings to housing, such as St. affordability. Increasing density (to the extent that it Mark’s Church on Park Street which was converted is not implemented across the board and thus capital- to 43 units in 1979; ized into land costs) results in lower land cost per 2. Convert accessory structures, such as carriage unit. It also contributes to greater economies of scale, houses, to housing; both through savings in construction costs and devel- 3. Convert existing attics and basements to new units opment overhead. Projects of greater scale can 3. Utilize appropriate vacant lots for develop- become more feasible and require fewer public subsi- ment; dies with income from market units to help under- 4. Investigate subdividable lots for appropriate devel- write the cost of providing the affordable units. opment sites; 5. Research potential redevelopment opportunities, While discussions of density often raise difficult such as the recently approved proposal at 20 Cameron issues, particularly in relation to neighborhood scale, Street to replace industrial uses with a 14 unit resi- this need not be the case. Indeed, in many parts of dential building.

3 Transit-Oriented Development The phrase “transit-oriented development” describes availability in Brookline will continue to have a a type of development that has a reciprocal relation- strong reciprocal relationship with development. ship: it is development that both supports and is sup- ported by mass transit. Although this is a fairly new Encouraging the continuance of transit-oriented term, promoted by architect Peter Calthorpe to development is an important opportunity for describe the development Brookline to preserve its his- of newly planned commu- toric patterns of develop- nities, it is based on the ment, enhance the diversity traditional concept of of housing and lifestyle streetcar . choices, as well as to lessen reliance on automobiles, Brookline was one of the thereby reducing traffic con- Boston area’s first street- gestion and environmental car suburbs. The density pollution, and increasing our of development that sustainability. occurred here in the mid to late 19th century and According to Creating throughout the 20th centu- Credit: Brookline Public Library Collection Transit Supportive Land-Use ry would not have been Coolidge Corner, ca 1910 Regulations, PAS Report possible without reliance #468, the maintenance and on mass transit. In fact, the most dense development creation of transit-oriented development relies on four patterns in Brookline have occurred in North basic concepts: Brookline where three of the MBTA’s green lines pro- 1. ensuring pedestrian and bicycle-friendly site and vide direct connections to downtown Boston (see streetscape design; Figures 1 & 3). 2. balancing the need to accommodate automobile parking with the needs of pedestrians, bicyclists, and With the prevalence of automobiles in our lives, these transit users; transit connections to Boston are no longer as strong- 3. encouraging mixed-use development; ly relied upon, particularly with reverse commutes 4. fostering appropriate development densities. (that is, Brookline resident’s working in outer suburbs as opposed to downtown) becoming more common Brookline has the opportunity to review its develop- than in the past. However, Brookline is one of six ment policies and land use regulations to encourage inner core communities considered part of the urban the continuance of our historic patterns of develop- ring corridor. According to the Urban Ring Major ment by fostering transit-oriented development. Investment Study, March 2000, this corridor is grow- ing faster than the regional average, and will contain over 250,000 residents and over 240,000 jobs by the year 2020. Therefore, it is clear that mass transit

92 report 5 HOUSING BROOKLINE PLAN 2000-2010 Mixed-Use Buildings 4 Combining the themes of cial buildings raises several transit-oriented development issues related to parking, his- and density by design, as well toric preservation, building as the benefits of additional code and structural capacities, foot traffic as related to the and potential coordination by health of local commercial multiple owners of contiguous centers, mixed-use neighbor- buildings. Encouragement of hoods and buildings can building-up in support of strengthen a community’s liv- affordable housing also ability. Many of Brookline’s requires appropriate incentives neighborhoods already exem- and controls which may differ plify the ideals of mixed-use. Credit: Jennifer Lutke from the Town's standard Further mixed-use opportuni- Mixed-Use Building inclusionary zoning require- ties exist, particularly with Corner of Beacon Street and Winchester Ave, 2000 ments. our single-story commercial buildings. These buildings, A "build-out" study regarding of which there are approxi- this issue could assist the mately 180 in Brookline,can Town in analyzing alternative provide valuable development incentives and provisions to opportunities that not only encourage this mixed-use increase housing opportuni- development. It could target ties, but also contribute to the appropriate blocks of Beacon, continuance of Brookline’s Boylston, Harvard and historic mixed-use and tran- Washington Street, and sit-oriented development pat- address permitted and poten- terns. Credit: Jennifer Lutke tial density where such build- Single-Story Commercial Building ings exist, as well as issues Adding additional stories on Washington Street,2000 related to context, design and existing single-story commer- parking. Zoning 5 Traditionally, zoning has been used as a tool to sepa- ods that can be used to appropriately calibrate the rate different land uses and to delineate the density of bonuses. They can include increased FAR and height development within neighborhoods. Brookline’s land allowances; modified open space, lot size, and park- use pattern consists of mixed uses and mixed densi- ing requirements; as well as a predictable develop- ties. One can walk down a street, such as Fuller ment review process. The Housing Advisory Board Street, and see various but compatible uses, from the and Zoning By-law Commission are currently focus- commercial uses at JFK Crossing to residential uses, ing on the portions of the zoning by-law which direct- and various densities, from single-family houses to ly impact affordable housing, and most importantly multi-family buildings, existing side-by-side. This Section 4.40. There is a clear interest in improving variety is valued as an important and unique compo- the effectiveness of the by-law to encourage afford- nent of Brookline’s livability. able housing. In doing so, it is important to consider the feasibility of incorporating bonuses that produce Brookline Zoning has attempted to make sense of this public benefits without increasing land values. pattern by creating various districts and regulating allowed uses and densities. However, actual land Finally, Brookline can consider following the lead of uses and densities often do not comply with the stan- other communities and invite the "friendly" use of dards that our zoning sets forth (see Figures 5&6). In Chapter 40B to achieve development at a density order to preserve the diversity of densities and the which exceeds that allowed by right, yet is designed strength of mixed use neighborhoods, it is important within a neighborhood context. “Chapter 40B” refers to analyze the impact of our Zoning regulations, and to a state law enacted in 1969 which provides incen- to make adjustments where necessary to preserve the tives to developers of affordable and mixed income defining elements of existing neighborhoods in terms housing by: of allowed uses, densities, open space, and the place- 1. requiring a community-coordinated "comprehen- ment of buildings on lots. sive permit" process, potentially including waivers to zoning and other local regulations; PUBLIC BENEFIT INCENTIVES 2) in communities where less than 10 % of the hous- Although Brookline’s Zoning By-law creates public ing stock is already dedicated to low and moderate benefit incentives by allowing bonuses in FAR income households, establishing a State Housing (Section 5.21), this section of the By-law is rarely Appeals process by which the State can review an used to create additional affordable housing, due to adverse local decision. A minimum of 20% to 25% the minimum lot size requirement of 20,000 s.f. as of the resulting units must be affordable. well as limit on the aggregate bonus allowed. These issues present an opportunity to re-think the structure Thus, despite the scarcity and cost of land, the Town of the By-law to include zoning tools which are more can use a combination of a strong real estate market flexible and which will more effectively increase our and all available local and State land use tools to affordable housing supply. According to Marya maximize the development of affordable housing. Morris Incentive Zoning, PAS Report 494, the zoning The Town's Housing Trust Fund by itself, and to the incentives (bonuses) offered by a community should extent that its use can leverage State funds, can pro- be proportionate to the cost to the developer of pro- vide additional incentives to willing developers to viding the desired amenity (such as affordable hous- exceed the minimum affordability requirements under ing). There are numerous standard evaluation meth- those laws.

BROOKLINE PLAN 2000-2010 report 5 HOUSING 93 Public & Comprehensive Plan Committee Comments, Report 5

- Some potentially subdividable parcels on the map - There used to be some parking garages for people look wrong. to use in Coolidge Corner near Waldo Street.

- A 20,000 s.f. lot minimum seems like a high thresh- - Mixed-use idea is being used all over the country. old to qualify for public benefits. We should embrace this concept.

- It's a burden on the schools to increase housing, - Level of owner occupancy is decreasing. Lower- especially if we are taking taxable property to reuse income households have greater need for vehicles. for housing. We should focus new development on MBTA routes are not adequate, especially in South providing smaller housing for people who no longer Brookline. need their big houses (such as elderly). - Even housing with no parking is desirable in - Transit and housing link is important. How do we Brookline. reconcile needs for housing and commercial develop- ment. The answers might be mixed-use and transit- - But if we only build units with no parking, then we oriented development. need to address the parking need in another way.

- Building on single-story commercial buildings are - We need to address housing for people with dis- good opportunities, especially for supporting transit- abilities, too. Single room occupancy (SRO) is also oriented areas. We can change the parking require- needed. When a family grows and children move out, ment to enable this type of development. the couple should be able to rent their large house to provide group housing. Is there money available to - There is no demand for units that have no parking subsidize that type of arrangement? . - But that would naturally make the units more - Meeting the 10% affordable housing requirement affordable than ones with parking. Plus, they would could mean a big increase in our housing stock. Also, be great for senior housing, especially if they are if we add that much housing, then parking needs will within walking distance of services and transit. increase.

- There are building code issues with retrofitting an - Some people do need cars and some don't. You existing single-story building for mixed use. We need can't generalize. We need to look at conversions and to look at the realism of this. If changes are greater using our existing stock for affordable housing - it than 25%, then whole building needs to be brought doesn't have to be just about building new. We up to code. But, a demolition and replacement could should also add tax incentives and relief: they could work, although there would be large start-up costs. be used for owners to rent at more affordable rates. Also, we should allow the creation of in-law apart- - How real is this 10% goal for affordable housing? ments.

- The goal is based on a State goal for all communi- - In-law apartments are a good way of providing ties in Massachusetts. more housing.

- Housing solutions need to fit-in with the solutions - Why should we be held to the same 10% standard to other issues too. It's important to know the age as other towns with more undeveloped land than us? demographics linked to the geography of the Town, and also to know ethnic backgrounds. Also, it would - State restrictions make the tax program you sug- be interesting to know if people come from other gested very difficult. We'd have to file a home rule places or from Brookline. petition.

- What are the tools to facilitate transit-oriented - What is the impact on rents from the residential development? We need incentives to facilitate this. exemption? Response: It probably affects it, but market demand is determining the rental price more - We need parking to drive development. But, if we than the residential exemption. agree that the concept of transit-oriented develop- ment is good, then maybe we don't need to require - Will part of the Comprehensive Plan include calcu- parking in transit areas. lations of growth impacts on town services? Response: A fiscal impact analysis is not part of the - Units with no parking are very difficult to sell. Comprehensive Plan, but we do need to take a look Even seniors need vehicles or at least parking for at the costs of our strategies. care-givers. - We need to be prepared to pay for affordable hous- - There is a possibility of making concessions for ing. We need to understand what these costs are. mixed-use and donating funds to a trust to develop off-site, centralized, shared parking. - Affordable housing is the hardest problem the Town has to deal with. The plan should have a - We should take another look at the development strong statement on the need for this. Also, the study that was done about 10 years ago to see what Town's affordable housing should be more fairly dis- its recommendations were. tributed among the Town.

- The shared-car concept is good too. The Zip-car - One point of 40B is to cut down on public input. company has grown considerable and is very popu- Response: That's not true, especially for a friendly lar. Also, mixed use can provide the opportunity for 40B project that the Town would be a partner in and shared parking. negotiate with developers to attract the right kind of project that would fit into Brookline.

94 report 5 HOUSING BROOKLINE PLAN 2000-2010 - The report understandably concentrates on the - The report outlines a whole series of options for issue of affordability and the provision of affordable providing affordable housing which lead to some housing - and this may well be a justifiable priority optimism of its being increased in a variety of cre- in the comprehensive plan. But “comprehensive- ative ways. But what the plans to assess and decide ness” calls for perhaps a bit more attention to other on these options so that they can be pursued as housing opportunities also. If Brookline is to respond urgently as the situation warrants? in anyway to its regional position and, for example, try in some way to play a role in preventing metro- - Three of the Board referred to in this report seem politan sprawl, then it may need to think about the to have overlapping responsibilities on affordable renewal and expansion of its housing stock more gen- housing. How are their separate responsibilities erally. identified and is there adequate interaction and com- munication between them?

BROOKLINE PLAN 2000-2010 report 5 HOUSING 95