Select Board Receives Overview of FY2027 Budget Recommendation, Discusses Plans for Accelerated Water Main and Sidewalk Construction, and Begins Town Meeting Article Review

ANDOVER, MA – The Andover Select Board met on Monday, February 9 in the Select Board Room at Town Offices. The Board reviewed a proposed Zero‑Emission Vehicle (ZEV) Policy, which provides a framework for the Town’s gradual transition of the municipal fleet toward more efficient technologies. Town Manager Andrew Flanagan introduced his recommended operating budget for FY2027 to the Select Board, providing a detailed overview of the $265.9 million proposal that seeks to balance financial stability with improved services aligned with the needs of the community.

The Department of Public Works provided a detailed presentation of its plans to accelerate water main and sidewalk construction projects in the coming years, consistent with the Board’s Strategic Goals and Objectives. Director Carlos Jaquez described how the department is sequencing water main replacements to target the oldest and most failure‑prone sections of the system, while simultaneously advancing a more ambitious sidewalk program in alignment with the Town’s Sidewalk Inventory and Pedestrain Master Plan.

The Board also began its annual review of articles for the upcoming Town Meeting, a multi‑session process during which the Board evaluates each warrant article and votes whether to recommend Town Meeting approval or disapproval for inclusion in the Finance Committee Report. During this first session, the Board reviewed and recommended approval of six articles.

Zero-Emission Vehicle First Policy
Director of Sustainability and Energy Melissa Eusden presented a proposed Zero‑Emission Vehicle (ZEV) First Policy to the Select Board. Eusden explained that adopting a ZEV First Policy is one of the final conditions required for the Town to earn “Climate Leader Status” through the Department of Energy Resources’ (DOER) Green Communities program, which will make the Town eligible for additional state grant opportunities to support sustainability initiatives. The Town has already achieved several steps necessary to earning the designation, including the adoption of the Specialized Stretch Energy Code.

Eusden outlined the purpose of the policy, which was drafted based on the DOER’s template and guided based on examples of policies adopted in peer communities. The policy aims to optimize the fuel efficiency of the Town’s fleet while accelerating the Town’s transition to electric vehicles and creating the charging infrastructure necessary to support that transition. To achieve this, the policy would guide future municipal vehicle procurement by prioritizing battery‑electric vehicles, plug‑in hybrids, and hybrid‑electric vehicles before considering traditional internal combustion engine vehicles. The policy provides exemptions for specialized equipment and emergency response vehicles. 

The Board expressed appreciation for the flexibility built into the policy, including its exemption process for cases where zero‑emission cannot meet operational requirements.The Select Board will revisit and vote on whether to adopt the proposed policy at a future meeting.

FY2027 Budget Recommendation
Town Manager Andrew Flanagan presented his recommended FY2027 Budget and Financial Plan to the Select Board, introducing a proposed $265,923,119 budget for the upcoming fiscal year. The budget strives to balance the long-term fiscal stability of the Town with strategic investments to improve and expand services and expand staffing capacity in the organization in targeted areas. 

The full budget document was released on Friday, February 6, and can be viewed online at andoverma.gov/fy2027budget.

Flanagan explained that the budget adheres to the principles of the Town’s Long‑Range Financial Plan and was developed using conservative revenue assumptions within the constraints of Proposition 2½. Revenue projections incorporate modest increases in state aid, reduced new growth estimates, and strategic use of exempt revenue tied to the West Elementary and Shawsheen Preschool building project.

According to Flanagan’s presentation, the proposal increases funding for Town departments by 2.75 percent, while the School Department budget is proposed to increase by 3.74 percent, inclusive of all transfers. 

The budget includes a 12 percent increase in health insurance, which Flanagan explained represents the greatest source of pressure on the operating budget. 

Flanagan also described several proposed adjustments to personnel which are intended to enhance the Town’s ability to meet the evolving needs of the community. The budget proposes the addition of two firefighters as part of the continued implementation of a multi-year plan to fully staff a third ambulance. Also within the Fire Rescue Department, the budget proposes the creation of an Assistant Fire Chief, a position that is common in comparable communities. This position will support administration of the department, EMS oversight, and risk management. 

Outside of public safety, the budget proposes the creation of a Transportaton Program Manager and Capital Projects Manager in the Department of Public Works, and a part-time Assistant Town Counsel. Overall, these positions represent a total increase to FTEs within the general fund of approximately 1.0 through offsetting adjustments elsewhere in the organization, the use of non-general fund revenues, and, in the case of the Capital Projects Manager, revenue from the Water Enterprise Fund. 

The FY2026 budget recommendation will undergo extensive review before Town Meeting is asked to consider its approval on April 28 during the first night of Annual Town Meeting. A full‑day budget workshop with the Select Board, Finance Committee, and School Committee will be held on Saturday, March 14, during which all departments will present an overview of their proposed budgets. Each board and committee will independently review the proposal and vote on a recommendation to Town Meeting that will be published in the Finance Committee Report.

Water Main Replacement and Sidewalk Projects 
Director of Public Works Carlos Jacquez, joined by Deputy Directors Art Martineau and Jeff Crane, provided the Select Board with DPW’s plans to advance the Board’s goal of accelerating water main replacements and sidewalk construction in the coming years. This goal was adopted in the Town Manager and Select Board’s Strategic Goals for 2025-2026, and is supported by proposed investments in the Capital Improvement Program for FY2027 of $12 million for water mains and $5 million for sidewalks. These investments will enable the Town to begin replacing approximately four miles of water mains per year and to advance the implementation of the 2023 Sidewalk Master Plan.

Jacquez reviewed the structure of the multi-year Water Main Replacement Program, which outlines a phased approach to replacing the Town’s remaining 40 miles of unlined or break-prone water mains. The acceleration plan doubles the pace of replacement compared to recent years and is targeted first at areas associated with the highest rates of discolored water and water main breaks. Increasing the annual replacement pace requires higher annual investment and coordinated planning with paving and private utility work to reduce disruptions to residents.

Turning to sidewalk improvements, Jacquez explained that the FY2027 budget’s increased investment will allow the Town to accelerate construction in alignment with the 2023 Sidewalk Master Plan, which aims to provide a safer and more connected pedestrian network. The two year, $10 million dollar funding approach will support both reconstruction and new sidewalk construction, helping the Town remain on track to complete the plan by FY2029.

Jacquez also reviewed recent sidewalk construction activity. Since 2020, the vast majority of sidewalk work, or 92.3 percent, has been reconstruction of existing sidewalks, while 7.7 percent has been new sidewalk construction. 

According to Jacquez, upcoming work will include new construction and reconstruction in several priority corridors identified in the Master Plan. Projects scheduled in the 2026 through 2029 period include Tewksbury Street, sections of Lowell Street, North Street, Salem Street, Washington Avenue, Canterbury Street, Abbot Street, Woburn Street, and Ballardvale Road. These projects reflect a balanced approach that advances both improved connectivity and needed rehabilitation of existing pathways.

Jacquez concluded by reviewing the factors that influence construction timing, including seasonal weather constraints, procurement cycles, contractor availability, and market conditions. He also described expanded communication strategies designed to help residents navigate construction related travel impacts, including abutter notifications, message boards, coordination with navigation apps, and regular updates to the Town’s project map. 

Town Manager Evaluation Process
Select Board Chair Alex Vispoli reintroduced the topic of the Town Manager evaluation process, a topic that was extensively discussed by the Board last year. The effort to establish an improved evaluation process began with the formation of a subcommittee, which spent several months reviewing best practices and developing recommendations to ensure that the evaluation process is fair, consistent, and aligned with the priorities of the Board. 

Deputy Town Manager Brittney Lavoie presented the proposed evaluation framework, which includes a simple online form that Select Board members will use to complete future evaluations. The form allows members to rate the Town Manager in several categories using a Likert scale, with space provided for written comments within each section. The framework is intended to establish a transparent and goal‑aligned system by updating both the tools and the timeline associated with the Town Manager’s annual review.

After discussion of the the proposed process, the Select Board voted to adopt the updated evaluation framework as presented. The Board then discussed whether individual Board members’ written comments should be attributed to the Board members who submitted them in the public report of the evaluation. Through this discussion, the Board concluded that comments will be presented in the composite report without attribution of the specific submitter. 

Annual Town Meeting Article Review 
The Select Board began the process of reviewing Annual Town Meeting articles. Through this annual process, the Select Board reviews articles that will appear on the Town Meeting warrant and votes on whether to recommend approval or disapproval of the articles. These recommendations are ultimately published in the Finance Committee Report, which is printed and mailed to all residents before Town Meeting.

This process will continue over the Select Board’s next several meetings. On Monday, the Select Board reviewed and voted to recommend approval of six articles.

Bylaw Amendment: Registry of Deeds E‑Recording Revolving Fund
This article proposes creating a new revolving fund to support electronic recording of deeds, easements, and other real property documents at the Registry of Deeds. The fund would allow several Town departments to collect e‑recording fees and efficiently effect the recording for applicants, with an annual spending limit of $6,000. 

General Housekeeping Articles
This standard annual article includes several routine authorizations: applying for and accepting state and federal grants; acting on the Town Report; accepting statutory property tax exemptions for eligible residents; authorizing certain multi‑year contracts; accepting easements; and rescinding unused bond authorizations. 

Chapter 90 Authorizations
This article provides the annual authorization needed for the Town to acquire easements associated with roadway and sidewalk projects funded through Chapter 90 or other state/federal transportation programs.

Granting and Releasing Easements
This authorization allows the Select Board, Conservation Commission, and School Committee to grant or release easements for water, sewer, drainage, utility, or other public purposes. It also adds clarity by permitting the release of existing easements when necessary to serve the public interest.

Stabilization Fund Bond Premium Transfer
This article authorizes transferring $250,000 from the Bond Premium Stabilization Fund to the General Fund to offset interest payments on non‑exempt debt for the upcoming fiscal year. 

Lease Authorization for Solar Facilities at the Public Safety Center
This article authorizes the Town to lease rooftop or land area at the Public Safety Center for the installation of solar photovoltaic facilities and to enter into associated power purchase agreements. Similar to prior projects on Town and School buildings, the intent is to advance renewable energy use while providing long‑term cost stability for electricity.

Other Actions 

• Select Board Chair Alex Vispoli discussed the new “Coffee with the Select Board” series, which provides an opportunity for residents to meet with members of the Select Board and discuss issues outside of a meeting setting. Vispoli said that the first event, held at the Robb Center in January, was a success. The Board set a schedule for monthly “Coffee with the Select Board” events through June. 
• Town Counsel Doug Heim provided an update on the ongoing process to revise the Select Board Policy Guidelines. According to Heim, there are three remaining sections of the document that require review: land use, alcohol licensing, and Town fees. The Board agreed to a proposed schedule recommended by Heim to review and consider adoption of these remaining sections.

The full meeting can be viewed online through AndoverTV. The Board is scheduled to meet next on Monday, February 23.