Select Board Discusses Capital Improvement Plan for FY2026-FY2030, Receives Update on Planned Pedestrian Improvements to Lincoln Street

ANDOVER, MA – The Andover Select Board met on Monday, November 18 in the Select Board Conference Room at Town Offices. During the meeting, Town Manager Andrew Flanagan introduced the recommended Capital Improvement Program for FY2026-FY2030, providing an overview of strategic capital investments totaling $23,539,722 for the fiscal year beginning July 1. The Board’s review of this document marks an important initial step in the annual budget development process. 

The Board also received an update on the Town’s plans to improve pedestrian safety on Lincoln Street and specifically the decision to pursue the construction of a 5-foot sidewalk and retain two-way traffic  on the roadway, rather than constructing a shared use path and reducing traffic to one-way, a concept that was evaluated through a trial project earlier this year. 

Other topics discussed by the Board included a letter to the Massachusetts Department of Environmental Protection (MassDEP) regarding the regulation of airborne emissions of PFAS chemicals, recent progress made by the Central Street Historic District Study Committee to evaluate the creation of a new historic district, and a Specialized Energy Code which would enhance energy efficiency in new construction projects. The Board also voted to set the means tested senior tax exemption rate at 100 percent of the circuit breaker tax credit.

The full meeting can be viewed online through AndoverTV. The Select Board is scheduled to meet next on Monday, November 25 and again on December 2. That latter meeting will be held on the same evening as a Tri-Board Meeting held in conjunction with the Finance Committee and School Committee to review the Capital Improvement Program. 

FY2026-FY2030 Capital Improvement Program (CIP) 
Town Manager Andrew Flanagan introduced the Capital Improvement Program (CIP) for FY2026-FY2030, outlining the strategic approach and financial planning involved in the program. The CIP is designed to address the Town's capital needs while maintaining fiscal responsibility and sustainability. Flanagan emphasized the importance of the CIP in supporting the Town's long-term goals and ensuring the efficient use of resources.

The presentation highlighted the implementation of a new funding target, shifting from a percentage of overall revenue to a percentage of the Town and School Operating Budget. This change aims to provide greater predictability and stability in managing debt service and planning future capital expenditures. The new target is set at 7.5% of the operating budget, replacing the previous target of 5.72% of overall revenue. The previous 5.72% target has been in use since 2015.

Flanagan detailed the outcomes of the previous CIPs developed using the 5.72% target, noting successful projects such as the construction of the Municipal Services Facility, the new Ballardvale Fire Station, and the renovation and expansion of the Senior Center. The CIP has also supported the Park & Playgrounds program, which has seen significant improvements to municipal playgrounds and playing surfaces, as well as the establishment of the Town Sidewalk Program.

The total recommended CIP for FY2026 is $23,539,722, with funding sourced from General Fund Revenue ($2,503,528), General Fund Borrowing ($4,830,000), Free Cash ($3,865,000), Special Dedicated Funds ($2,041,194), and Water and Sewer Enterprise Funds ($10,300,000). This comprehensive plan includes significant investments in various areas: 

• Infrastructure Improvements: Continuation of the sidewalk improvement program, increased funding for roadway improvements, drainage improvements, and bridge evaluation and maintenance.
• Water & Sewer Infrastructure: Continuation of the water main replacement program, investment in the Water Treatment Plant, and investment in both water and sewer pumping stations.
• Active Transportation: Funding for Elm Square design improvements in addition to sidewalk enhancements.
• Recreation Facilities: Improvements to Rec Park, Pomps Pond, and the Playstead, along with phased investments at the Chandler Road Recreation Area.
• River and Open Space Access: Construction of an ADA kayak launch at Nason’s Landing and annual funding for access improvements to the Shawsheen River.
• Conservation Priorities: Funds allocated for invasive plant species management, boardwalk restoration at the Mary French Reservation, accessibility improvements, and survey work on conservation priorities. 

The release of the CIP marks the first step in the annual budget development process. The document will undergo further public review throughout the weeks ahead. A Tri-Board Meeting to review the plan is scheduled for Monday, December 2, and the Select Board will review the document further at its meeting on December 16.

The full plan can be viewed online at: andoverma.gov/FY2026CIP.

 Lincoln Street
The Select Board received an update on the Town’s efforts to evaluate pedestrian safety improvements along Lincoln Street from Deputy Town Manager Mike Lindstrom. During the presentation, it was announced that the Town will not pursue the creation a permanent shared use path or reducing the street to one-way traffic, and instead will seek to construct a 5-foot sidewalk along the western side of the roadway. 

Lincoln Street is an approximately half-mile roadway that runs between Lowell Street and Shawsheen Road, near Andover High School. Improving pedestrian safety on Lincoln Street has been a longstanding priority of the Town of Andover, and has been highlighted in several planning initiatives including the Complete Streets Prioritization Plan. 

Over the last several months, the Town has evaluated the feasibility of created a shared use path on Lincoln Street and reducing the roadway to one-way vehicular traffic. The Town’s evaluation of the shared use path proposal included a five-week trial from August 19 to September 22. During the trial period, the Town evaluated the project’s effects on traffic on Lincoln Street and in the surrounding area, as well as the benefits to pedestrian safety. Throughout the trial, the Town gathered extensive data on pedestrian usage of the shared use path and impacts to traffic from reducing the roadway to one way. Community feedback was gathered through surveys and public meetings. 

Based on the information collected, the Town is not recommending making Lincoln Street one-way permanently or creating a shared-use path. Instead, the recommendation is to construct a 5’ sidewalk on the west side of Lincoln Street from Lowell Street to Marilyn Road while maintaining two-way traffic. This approach aims to enhance pedestrian safety without significantly impacting the existing roadway and surrounding properties.

PFAS Letter
During the Board’s prior meeting, the Select Board discussed polyfluoroalkyl substances, or PFAS, and the Town’s ability to regulate these chemicals. The discussion was prompted by Procter & Gamble/Gillette’s proposed expansion in Andover, which has raised concerns among some residents about the potential emission of PFAS at the site. The Board agreed to submit a letter to the Massachusetts Department of Environmental Protection (MassDEP) advocating for greater regulation around airborne emissions of PFAS chemicals. A draft of this letter was discussed by the Board on Monday. 

The letter requests that MassDEP consider implementing more stringent monitoring and reporting requirements for PFAS emissions and explore the feasibility of setting enforceable limits on these emissions. The letter also calls for increased engagement in the PFAS Interagency Task Force and the dissemination of the latest credible research on PFAS to local municipalities. Additionally, it urges MassDEP to prioritize the development of innovative detection technologies for airborne PFAS to identify point-source emitters before contamination occurs.

The Board suggested several changes to the content of the letter. A final version of the letter, reflecting comments from the Select Board, will be sent to MassDEP. Andover’s state delegation will also receive a copy of the correspondence in hopes they can help to advance this matter. 

Means Tested Senior Tax Exemption
The Select Board voted to set the means tested senior tax exemption rate for FY 2025. This program provides a tax exemption to certain residents who have owned and occupied their home for at least the last 10 years, were 65 years of age as of last December, and received the senior circuit breaker tax credit when filing their previous year’s Massachusetts income tax return.
 
Andover approved a home rule petition establishing a means tested senior tax exemption at Annual Town Meeting in 2018. The measure went into effect in FY2020. The home rule petition allows the rate of the exemption to be set at 50 to 100 percent of the amount of the circuit breaker income tax credit received by eligible applicants in the previous year.

The Select Board voted to set the means tested senior tax exemption rate at 100 percent of the circuit breaker tax credit, consistent with the rate set in all years since the program was adopted. 

The deadline to apply for this exemption was September 2024. The Assessor’s Office conducts extensive outreach to ensure that potentially eligible residents are aware of the program. 

A total of 113 applicants qualified for the exemption for FY2025. The cost to fund this exemption is estimated at $10.56 per taxpayer, based on the average tax bill. 

Specialized Energy Code
Director of Sustainability and Energy Joyce Losick-Yang presented an overview of Specialized Energy Code to the Select Board. This code is designed to enhance energy efficiency in new construction projects larger than 1,000 square feet. The Specialized Energy Code applies specifically to new buildings, whereas large additions, major renovations, historic buildings, and specialized buildings like labs and warehouses will continue to be regulated by the existing Stretch Code. Importantly, the code does not ban natural gas.

Losick-Yang explained that building energy codes ensure that homes and other buildings are constructed to be energy efficient, focusing on performance, comprehensiveness, and upgradability. The Specialized Energy Code includes standards such as the Home Energy Rating System (HERS) and Passive House (PH) certification, which significantly reduce energy demand. For example, a HERS Index Score of 45 is 55% more efficient than a home built to 2006 standards.

The presentation compared the Stretch Code currently in effect with the Specialized Code for different types of buildings. For residential buildings, the Specialized Code requires HERS 45 or PH certification for all-electric homes and additional requirements for mixed-fuel homes, including solar installations and pre-wiring. For commercial buildings, the Specialized Code mandates Passive House or Thermal Energy Demand Intensity (TEDI) standards, with additional requirements for mixed-fuel buildings.

Losick-Yang highlighted examples of Specialized Code-compliant buildings, such as the all-electric West Elementary School in Andover and the Passive House-certified Finch Cambridge Affordable Housing. She emphasized the importance of building codes in reducing energy usage and costs, noting that 46 communities in Massachusetts have adopted the Specialized Code as of October 2024.

According to Losick-Yang, the Town’s goal is to present the Specialized Energy Code for adoption at Annual Town Meeting in 2025. Several public meetings on this topic have been held on this topic in recent months 

Central Street Historic District Study Committee
The Select Board received an update on the work of the Central Street Historic District Study Committee from Deputy Town Manager Austin Simko. The Central Street Historic District Commission was created by a vote of the Select Board on June 17. The Committee is charged with studying the benefits, parameters, and feasibility of establishing a new historic district to protect the historic integrity of Central Street. The update came following the Committee’s recent submittal of a preliminary report to the Massachusetts Historical Commission and the Andover Planning Board. 

Since the Committee was appointed, it has held nine public meetings, a public forum in September, and several meetings with Central Street property owners. The committee has also conducted a public walking tour with the Andover Center for History & Culture, sent three letters to residents soliciting feedback, and received 361 responses to an online survey. The committee has been investigating the historic significance of buildings, structures, and sites within the Central Street area. 

Through this work, the Committee has developed a proposed district that would preserve and protect the distinctive characteristics of buildings and places significant in Andover's history. Simko discussed the boundaries of the potential district, which is proposed to stretch from the corner of Essex and Central Street at the northern end, down to 88 Central Street at the southern end. The properties on Central Street that are not encompassed by the district were generally built in the mid-20th century, and do not bear the same historical significance. 

Simko emphasized that the creation of a historic district would not require maintenance, and there would be a process for addressing financial hardships. He also noted that building alterations continuing the status quo and changes not visible from a public way would be exempt from regulation.

Next steps for the committee include preparing draft design guidelines, and holding a forum with churches included within the proposed district. The Committee plans to submit a warrant article for the April 2025 Annual Town Meeting. The Select Board expressed support for the committee's efforts and appreciation for the pace at which it has worked to produce a recommendation and report ahead of Town Meeting.