At the Wednesday, September 7, 2022 Town Council workshop,  Tom Dworetsky and Dan Stevens of Camoin Associates reviewed the third report from their Housing Diversity Study; Volume 3: Strategy Development. The report was the last of three tasks delivered since May.  The first task was the delivery of Volume 1: Housing Data Package; the second task was the delivery of Volume 2: Housing Creation Goals which could be used by the town over the next ten years.  A final report is forthcoming and will combine all three volumes.

Participants in the workshop included several members of the newly appointed Ad-Hoc Housing Diversity Study Committee.  In attendance at the workshop were  Stephanie Anderson, Kevin Justh, Katie Reeves, and Tim Thompson.  The approval of the seventh member of the committee was moved to the council’s September 12 meeting*.

Dworetsky lead the review by saying, “When we talk about potential strategies for creating diversity in housing options, it’s important to look at the impediments that have gotten in the way of diversifying housing.”  As categorized in the report, the impediments specific to Cape Elizabeth are:

• Restrictive, low-density land-use regulations; current regulations tend to favor single-family housing.
• Limited supply of development sites.
• High land costs.
• Divided public opinion, with a wide range of opinions.
• Community perception among potential housing developers.

Dworetsky said that these impediments can be addressed through suggested strategies, starting with, “Embracing different housing types.”  In particular, the “missing middle” -- the spectrum of housing types between single-family homes to midrise/high-rise apartment buildings.  This type of housing is largely absent in Cape Elizabeth due to land use regulations and zoning.  After reviewing the town’s rules, Dworetsky said, “These types [missing middle] of housing options are almost exclusively not allowed in Cape.”   

Despite this, “We have identified these housing types that would not only be a good fit for Cape Elizabeth, but be important to reaching housing diversity goals,” Stevens said.  According to Stevens, the selection of typologies was based on previous conversations that suggested seniors and empty-nesters looking to downside, are an important target population.  With that in mind, the identified housing typologies include: accessory dwelling units, small single-family homes, clustered cottages, duplex and triplex, attached townhouses, mansion apartments or fourplex, and garden apartments.  However, Stevens emphasized, “These types of houses lend themselves to being more affordable, but they are not necessarily affordable by nature without additional policies and programs in place.”  

In an effort to achieve housing goals, Stevens emphasized, “Efficiency of land use, in terms of denser housing types, will be necessary to reaching housing goals.”  Whether a moderate or ambitious housing goal is set, “It will be extremely difficult to reach housing goals without incorporating one to three garden-apartment-type projects, each with 30 to 50 units,” Stevens said.  In order to accommodate a garden-apartment-type typology, the consultants scanned for land parcels that were both three or more acres in size and within 0.2 miles of sewer infrastructure. Within the town’s designated growth areas only 16 undeveloped parcels were identified, “Which does not allow much opportunity,” Stevens said.  Looking outside of the town’s growth areas and using the same search criteria, the number of undeveloped parcels is 32.  “This makes the pool of affordable housing locations much larger and reaching housing goals realistic,” Stevens added.

Next, Dworetsky reviewed five steps of a “Strategy Framework” that could be utilized in the town’s pursuit of creating housing diversity.

1. Set goals, foster public support, and build capacity.

Dworetsky explained that this is a critical first step in order to make progress on the other strategies.  This includes determining, “The number of units over a given timeframe.”

2. Align regulatory policies to encourage diverse housing production.

According to Dworetsky, examples of this include: expanding inclusionary zoning policy; expand growth areas through strategic rezoning; ‘up-zone’ growth areas by allowing for higher density housing development; expand density-bonus policy; reduce or remove planning, permitting, and/or impact fees for affordable housing; streamline the approval process; develop criteria for TIFs; encourage accessory dwelling units; maintain short-term-rental regulations with periodic evaluation of effectiveness; and reduce parking minimums.

3.  Identify sites and provide infrastructure. 

Dworetsky explained that in order to make a dent, “We will need a few larger projects and inventorying potential housing development sites,” and then connect owners of key sites with housing developers; acquire sites with housing-development potential; address infrastructure gaps for key developments; and/or make sure that prime sites don’t get used for other purposes.

4. Develop partnerships.

This can be accomplished, Dworetsky offered, through: establishing a local housing trust that is charged with a singular mission of creating affordable housing; engaging with local and other Maine-based affordable housing developers; and collaborating regionally on housing efforts.

Following the presentation, the council, along with attending members of the committee, discussed how to go about establishing clear and measurable affordable housing goals which would guide the Ad-Hoc Housing Diversity Study Committee in their work.  Committee member Thompson said, “I am anxious to get started on the work, but when you talk about goals, our job is to get feedback from the community before giving the council suggestions.”  Councilor Gretchen Noonan said she agreed that a community survey would be useful, “But I would like to see a goal that [in addition] includes other typologies, such as affordable dwelling units.” Councilor Penny Jordan wondered about giving the committee a, “Stretch goal” which could be examined for viability by the committee as they canvas the community’s wishes.

Councilor Nicole Boucher agreed that the council should provide input and guidance on goals to the committee and, “Pick one or two target populations to focus on.”  “The more different types of housing options you have, the more you will be able to naturally bring more affordable housing options,” she said.

Committee members, Thompson and Anderson, both asked if there were any segments within the town that the committee should not consider as options.  Thompson commented that, “A super aggressive approach would look at use of town-owned land, farm land, and taxpayer funds to purchase land” and wondered if these options are, “off the table?”  Anderson asked if the committee could look at land that is, “Encumbered by CELT [Cape Elizabeth Land Trust] or conservation?”

Committee member Reeves suggested making, “A distinction early on between affordable housing and diverse-market-value housing.”

Chair Jeremy Gabrielson said that in thinking about the name and the charge of the committee, “It really is focused on housing diversity and looking for strategies to increase housing diversity within the community.”  Gabrielson added, “I look forward to hearing back in the next couple days or weeks when the first meeting will be. I would like to make sure we are holding space on the council agenda -- either in a workshop or council agenda -- so that we can have a back-and-forth as you begin the work.”

*With the council’s proceeding meeting on September 12, the seventh and final member of the Ad-Hoc Diversity Study Committee was approved by a vote of 6-0.  Curtis Kelly will join the six other committee members appointed on August 8 [Article].  The committee is now positioned to begin their work with the support of K&J Strategic Solutions.