CPAC MINUTES 

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Comprehensive Plan Advisory Committee Minutes

- Meeting #9-

 

4/11/2023  6:30 P.M. Exeter Public Library

773 Ten Rod Road, Exeter, RI 02822

MINUTES APPROVED: May 9, 2023

 

CPAC Members		Member Present Y – Yes N – No	PB Members	Member Present Y – Yes N – No	Other Staff/Consultant
Christopher	Ausura	N			Larissa Brown William DePasquale
Tom	McMillan	Y			M. Dixie Foisy, Clerk
			Scott Millar	Y	Olivia DeFrancesco, Council Liaison
Ben	Coerper	N	Michael P. DeFrancesco	Y
Rachael	Slattery	N	Bill Haas	Y
Robert	Corriea	N	Gina Thurn	Y
Jenna	Cragan	Y	Donna Di Donato	Y
Jess	DeMartino	N	Michael Viveiros	Y
			Joseph St Lawrence	N
Charles	Franklin	N
Tracy	Hartman	Y
Maggie	LaPrise	Y
Ray	Morrissey	Y
Ted	Nataly	N
Noah	Thurn	Y
Paul	Ward	N

 

1.     CPAC CALL TO ORDER – William DePasquale, Town Planner, called the meeting to order at 6:32 p.m. and roll call was taken by the Planning Board Clerk.

 

2.     At this time, William DePasquale turned the meeting over to Ms. Larissa Brown.  Ms. Brown stated that the group would be reviewing draft ELEMENT 5: HOUSING AND AFFORDABLE HOUSING PLAN.  She indicated that the State Planning Office has some very clear guidance about updating the Affordable Housing Plan through evaluating the success of previous strategies and discussing how Exeter can reach and maintain a 10% inventory of affordable housing over the next 20 years. She indicated that if you don’t have a plan that answers their questions in some way, the plan will not be approved. She then went on to summarize the draft elements and reviewed “Housing” in the Vision Statement.

 

 

   

     ELEMENT 5. HOUSING AND AFFORDABLE HOUSING PLAN.

 

Most people in Exeter live in single family homes (84%) on large lots, are homeowners (86%), and depend on    private water and wastewater systems. Eighty percent of Exeter housing stock was built since 1960. After consistent population and housing growth between the 1960s and the early 2000s, the pace of development has slowed. However, as in the rest of Rhode Island, housing prices have increased substantially. The median price of a single-family home reached half a million dollars at the end of 2022 and increased 55% between 2016 and 2021.

 

HOUSING IN THE EXETER 2044 VISION

…To help preserve our open space tradition, new residential development within the landscape is focused in hamlets or villages…. We are a family-friendly and aging-friendly community, supporting young families with attainable housing, an excellent school system, and youth activities, while seniors can find services and housing choices that allow them to remain in town as they get older…

 

Ms. Brown then reviewed the following numbers:

Findings:

Total housing units:  2,416. Exeter has fewer housing units than all other municipalities except Foster and New   Shoreham, and approximately the same number as Little Compton (2,444) and West Greenwich (2,473). 

(The 2004 affordable housing plan estimated that there would be 2,598 housing units in Exeter in 2020.)

Occupied housing units:  2,278

Owner-occupied housing units: 1,951 (85.67%); vacancy rate – 0%

Renter-occupied housing units:  327 (14.35%); vacancy rate – 9.4%

 

In the draft document Ms. Brown covered the following topics: Pace of housing development. Housing development has slowed in Exeter in recent decades. This appears consistent with the fact that Exeter is one of the few Rhode Island towns whose population did not attain the level projected for 2020 by the State Planning Office in 2013.  Planning efforts to create a mixed-use town or village center.  Exeter completed a community-based visioning project in 2011 (A Vision for Exeter) focused on creating a mixed-use village center with a greater variety of housing density and types than in base zoning and combined with a Transfer of Development Rights (TDR) program intended to balance preservation of rural lands with higher density residential development. This would direct residential development to a “Growth Center” consistent with State land use policy.  Limited housing diversity.  Among single family houses there is a range of housing, from modest cottages to historic homesteads and suburban-style large houses.  However, there are few apartments and other options in Exeter. Mobile homes can be found in two mobile home parks and scattered lots. No public sewer and almost no drinking water systems. Providing drinking water and onsite septic systems for conservation subdivisions, village-style developments, rural compounds, small apartment developments, and similar housing models adds to development costs.  Cost of Housing While the median income of Exeter residents is higher than the state median and the poverty rate is lower than statewide, the high cost of housing and lack of diversity in housing types limits housing opportunities for households with modest incomes.  Income needed to buy a median-priced home. Using 2021 data, HousingWorks RI estimated that an annual household salary of nearly $123,000 was needed to buy a median-priced home in Exeter without spending more than 30% of income on housing (the threshold of affordability). Before the pandemic in 2019, an estimated 26% of Exeter households (approximately 600 households) received $50,000 or less in annual income. First time homebuyer and rental opportunities. There is little entry-level ownership housing in Exeter. While condos are entry level housing for first-time homebuyers in many communities, that is not the case in Exeter, where the median price of condos meets or exceeds the median price of single-family homes.

 

Ms. Brown indicated that what Exeter needed to do, about a number of housing issues, would require the Town to make adjustments in their Zoning Ordinances in order to become consistent with State law. She also noted that because Exeter has no public sewer system or drinking water system that these absences also become barriers for constructing different types of housing.

Ms. Brown went on to discuss: What is “affordable housing?”

For legal purposes, the definition of housing affordability is based on three statistics: median household income, the percentage of household income spent on housing, and the median cost of housing. Under most subsidy programs, housing produced with government financial assistance is targeted to people whose household income is 80 percent or below the area median income (AMI), set annually by the US Department of Housing and Urban Development (HUD), in relation to household size.

 

Ms. Brown stated: Affordable Housing is not the same as Public Housing. Affordable Housing is typically privately owned; if it is ownership housing it would be subsidized single-family or condo, subsidized rental housing is owned by a private landlord or private corporation that have received the government subsidy to provide affordable housing. She indicated that there are a huge number of different types of subsidy programs. 

 

She then explained that: Public Housing is federally funded and owned and run by a local public housing authority and generally speaking for very low-income elderly and disabled persons. She indicated that there are very few public housing units left in the United States anymore and there have been no new housing units built since the mid-1990s.

 

Ms. Brown spoke about different voucher systems, but one voucher program in particular called, Project-Based Section Eight, which is assigned to a specific development. She noted that there are a few housing units in the Pine View Apartments that are Project-Based units. She stated that once the tenant is qualified for the voucher program, they would pay 30 percent of their income and then the landlord would receive the difference from the federal government. Discussion took place around Group Homes and Ms. Brown indicated that they do count towards the Town’s affordable housing numbers.

 

Discussion took place between Ms. Brown, Jenna Cragan, Michael Viveiros and Planner DePasquale: It was discussed that when creating new affordable units, that they do not have to be new construction. That repurposing existing houses and renovating them into affordable housing units is an excepted option. It was noted that building new is probably more typical.

 

Exeter:  State-Listed Affordable Housing Units:  187

Development                   Population     Type                     LMIH Units

Whispering Pines……………….       Elderly………………Homeownership…………4

Deer Brook I & II………………..        Family……………… Homeownership………..27

Exeter Mobile……………………        Family……………… Homeownership………..1

Highland Court…………………..       Family……………… Homeownership………..2

Pinecrest Drive Habitat………       Family……………… Homeownership…………2

Silas Hill (Liberty Hill)…………       Family……………… Homeownership…………7

Yawgoo Valley Road………….        Family……………… Homeownership…………2

Old Harbor Village……………..       Family……………… Rental…………………………1

Group Home Beds……………..Special Needs……N/A…………………………….101

Pine View…………………………..        Family……………… Rental………………………….40

(Gina Thurn noted that Habitat House on Gardner Road was not listed and was new in the last 2 years).

 

Ms. Thurn also asked: Could you convert a single mobile home into Affordable Housing?

Mr. DePasquale indicated that a nonprofit would have to purchase the property and explained you would need to go through the process of restricting it and that over 30 years all the tenants meet the criteria of the housing.

 

There was discussion around Pine View Apartments: 

Pine View Apartments Structure and Development Process

Affordable housing development, particularly for rental housing, is often complex.  Pine View, with 40 rental apartments for income-eligible tenants in 10 two-story buildings, is the first multifamily 100% affordable rental development in Exeter and is located on 7.6 acres off Route 2.  It was developed by a nonprofit affordable housing developer, Women’s Development Corporation, and like many affordable developments, the project involved a variety of funding sources and governmental agencies. It is managed by an affiliate of the nonprofit developer.

 

Michael Viveiros suggested that the committee members should take time to go see the Pine View development and see if this is something the Town may want to consider developing more of in the future. He indicated that in general, these properties are well-managed more now so than in the past, and noted that most affordable housing properties are being managed by private developers. 

 

In the Draft Section III—Element 5: Housing and Affordable Housing Program (Page 8) this was offered as a modest affordable housing planning scenario for the 20-year time horizon for the comprehensive plan:

 

•        Between 2011 and 2021, Exeter averaged 11 new single-family houses per year and 8 multifamily units (including LMIH units) for a total of 19 units. 

•        If the town continues to average that many new units per year, the total number of housing units added between 2020 and 2030 would be 190 to make a total number of housing units in Exeter of 2,706.  That means the 10% LMIH requirement in 2030 would be 270 units.  If no affordable units were created after Pine View apartments, the gap would be 83 units. 

•        Adding another 190 units in the decade 2030-2040, without any more affordable housing, would result in 2,896 total units in Exeter, leaving an LMIH gap of 103 units. 

•        In this scenario of continuing modest growth, Exeter needs to add 103 new units of affordable housing during the 20-year time period of this comprehensive plan.

 

Ms. Brown reviewed previous actions to increase affordable housing but noted this had not been very successful.

Scott Millar added his comments regarding the Ladd Center property (State owned) and that if they could work with the State to utilize that property, Exeter would be able to add a number of affordable homes.

Larissa Brown indicated that by adding two additional Pine View type developments in the future would help tremendously in meeting the required 10 percent affordable housing requirements.

Scott Millar mentioned that there was another comprehensive permit in town, Liberty Hill Office Park, and that housing units were built there, although he was not sure how many would be considered LMI units.

M. Dixie Foisy, Planning Board Clerk, noted that Silas Hill, listed in the affordable housing units above, is the Liberty Hill Office Park.

 

Challenges:

•        The slowdown in housing development as a whole in the last two decades, especially subdivisions, has made market rate housing growth less of a concern among residents in general.  However, the town continues to have large landholdings that could be developed using existing base residential zoning to create approximately 3,000 new single family housing units.  While a complete buildout is unlikely to happen, the State requires that the comprehensive plan take into account potential housing development over the plan’s 20-year time horizon, both for market rate and for affordable, below market-rate housing.

•        The populations who are most in need of affordable housing in Exeter continue to be the 27% of all households who are cost-burdened, renters (73% cost-burdened) in a context of little rental housing, and elderly households.

•        The Town did amend the zoning ordinance to provide inclusionary zoning and other tools and incentives for affordable housing.  In addition, it provided for the creation of an Affordable Housing Advisory Commission and an Affordable Housing Trust Fund.  However, it is not clear that there have been any proactive implementation efforts related to affordable housing production. The Town cooperated with the developers of Pine View Apartments, for example, but were not involved in pursuing this affordable project. 

•        Affordable housing production to meet State law has become a greater concern to some residents, as well as State efforts during the 2023 legislative session (at the time this comprehensive plan is being written) to promote housing development statewide that may reduce municipal land use controls.  For example, in 2022 State law was amended to reduce municipal constraints on Accessory Dwelling Units (ADUs).

 

Opportunities:

•        Challenges can be overcome. As a small community with rural characteristics, Exeter faces a variety of

Challenges to the production of affordable housing:  lack of infrastructure combined with hydrological and geological constraints, a high percentage of conservation land, and a small government and town budget.  However, the progress made by the end of 2022 shows that there are ways that Exeter can facilitate affordable housing construction, but in the next 20 years it will need to do more than change regulations and wait for developers to appear.  By developing a proactive housing strategy that employs a variety of mechanisms to increase housing choice in type and affordability and creating relationships with potential partners, ranging from State agencies and developers to landowners and Exeter residents as a whole, Exeter can promote creation of a sufficient number of affordable housing units to meet the 10% goal and meet the housing needs of low-income local residents and employee.

·        The strategy will need to generate more capacity and information for town residents and leadership, as well as develop consistent relationships.  The current ordinances are written to add affordable housing leadership responsibilities to the work of existing elected and appointed officials.  They are important decision makers but other knowledgeable people—residents or possibly consultants for specific roles, such as finding an early action project that might benefit from the State’s new housing financing opportunities—who are committed to affordable housing should be recruited to help Exeter move forward towards meeting and maintaining the 10% affordable goal.

 

       What the Community Said:

In the townwide survey, most mentions of housing were positive references to low-density living with access to nature and open space. Affordable housing was a theme that elicited differing responses in answer to the question, “What do you like least about Exeter?”  Some respondents said that Exeter needs affordable housing for young families and seniors, while others do not support affordable housing…

 

Ms. Brown reviewed with the committee members the following three Strategies and Actions to Achieve the Goals (Pages 13-20 of draft document):

 

GOAL 1:  New residential development is managed to promote preservation of environmental connectivity and rural character.

Strategy A:  Review and modify regulations to guide residential development to preserve environmental connectivity.

 

GOAL 2:  Exeter has a range of quality housing choices to meet the needs of households at all income levels and stages of the life cycle.

            Strategy A: Activate a housing policy and implementation program within Town government.

            Strategy B:  Actively pursue strategies to attract affordable housing and elderly housing development.

           

       GOAL 3: Exeter takes proactive measures to advance efforts to create a mixed-use village or town center.

            Strategy A: Market the Exeter Village Center idea.

 

 Strategies and Actions with Projected Low—and Moderate—Income Units

 (Total minimum projected units: 103; more robust housing market: 137)

     Strategies and actions:

 

·        Activate a housing policy and implementation program within Town government: Affordable Housing Advisory

Commission; Affordable Housing Trust;

·        Actively pursue strategies to attract affordable housing and elderly housing development;

·        Identify locations and reach out to developers, agencies, and property owners for affordable and senior housing;

·        Inclusionary zoning;

·        Elderly housing;

·        Amend zoning to encourage appropriately scaled multifamily rental housing on Routes 3 and 2;

·        Mobile home transformation;

·        Create a community land trust;

·        Amend zoning for affordable ADUs;

·        Pursue Village housing.

 

Ms. Brown suggested creating a Guidance Document for property owners and developers on how to preserve the environment. Michael DeFrancesco felt that this type of information has been handled through the Preapplication meetings with the Planning Board when discussing potential projects. Scott Millar felt that creating a document of this type would be difficult at best and he felt that Conservation Development already does this work. Ms. Brown indicated that because there is a need for more community involvement in order to move some of these future plans forward, it may become necessary for the Town to budget for additional help from consultants. Scott Millar indicated that there is legislation pending right now that would require the Town to totally redo their subdivision regulations along with major changes to Exeter’s zoning and probably change the comp plan process, and those things alone will keep the boards busy for the next 2 years. He also noted that if the State doesn’t give us any financial assistance, we will need to ask tax payers for their assistance.  Ms. Brown reminded the committee to remember this is a 20-year plan.

 

Ms. Brown suggested looking at different opportunities for developing specific communities, i.e., “Agrihoods,” Artist communities, etc.  Jenna Cragan noted that on the Big Island in Hawaii, has developed innovative “Agrihoods” with a great deal of success.

In conclusion, Ms. Brown asked the committee members for written comments.

 

3.     Public Comment: None

 

4.     ADJOURNMENT:

Ray Morrissey made a motion to adjourn the CPAC meeting; Michael Viveiros seconded the motion. The vote was all in favor.  The CPAC meeting was adjourned at 8:44 p.m.

 

The next joint Planning Board/CPAC meeting will be on Tuesday, May 9, 2023.