Groton, Massachusetts has implemented several inclusionary zoning policies since 1982 to increase its stock of affordable housing units. As of 2008, Groton had 208 affordable units, or 5.2% of its total housing. Groton's zoning bylaw requires developers to provide affordable units for projects over a certain size threshold. For example, flexible developments over 10 units must provide 15% affordable units. The Town Center Overlay District also requires 15% affordable units for projects over 6 units. Groton faces ongoing challenges like increasing accessible and rental units, and addressing temporary housing needs on a regional level.

1. INCLUSIONARY ZONING
Groton’s Experience
Michelle Collette, AICP
Town Planner

2. Groton, Massachusetts

3. Land Area: 32.5 square miles
Population: 10,937
Government: Open Town Meeting
Affordable Units: 208 Units or 5.2%
Open Space: 8889 acres or 41% land area
Miles of roadway 107
Public Water: 60%
Public Sewer: 15%
Rivers: Nashua & Squannacook
ACEC: Squannassit/Petapawag
Groton’s Community Profile

4. Affordable Housing Units

5. Zoning By-law Provisions
Adopted Zoning Provision Special Permit
Granting Authority
Required
Affordable
Threshold Bonus Units Units
Approved to
date
1982 Subsidized Elderly
Housing
Zoning Board of
Appeals
50% All No 4
1982 Planned Multifamily
Residential Development
Planning Board Optional 0 No 74
1990 Flexible Development Planning Board 15% 10 units Yes 26
2005 Accessory Apartments Zoning Board of
Appeals
Optional 0 No 0
2008 Town Center Overlay
District
Planning Board 15% 6 units Yes, with
TDR’s
3
Other - Site Plan Review Planning Board
(By-right
Optional 0 No 5

6. Flexible Development
Flexible Development Definitions:
AFFORDABLE TO PERSONS OR FAMILIES QUALIFYING AS LOW INCOME —
Affordable to persons in the Lowell metropolitan statistical area under the applicable
guidelines of the Commonwealth's Department of Housing and Community
Development earning less than 50% of the median income.
AFFORDABLE TO PERSONS OR FAMILIES QUALIFYING AS MODERATE
INCOME — Affordable to persons in the Lowell metropolitan statistical area under the
applicable guidelines of the Commonwealth's Department of Housing and Community
Development earning more than 50% but less than 80% of the median income.
HOUSING FOR PERSONS WITH DISABILITIES — A dwelling unit in compliance
with the standards of the Americans with Disabilities Act and pertinent Massachusetts
standards.

7. Flexible Development
Affordable component.
(1) As a condition of the grant of any special permit for a flexible
development for any development creating more than 10
dwelling units, affordable units shall be required as follows:
(a) Fifteen percent of the units shall be affordable to persons or
families qualifying as low or moderate income.

8. Rocky Hill Subdivision
Groton Housing Authority
Nine Rentals Units

9. Inclusionary Units in Subdivisions

10. Town Center Overlay District
(8) Affordable housing requirements.
(a) In any TCOD development with more than six dwelling units, at
least 15% of the dwelling units shall be restricted as affordable
units as defined in § 218-26B of this chapter.
(b) Computation of the required number of affordable units shall be
based on the total number of dwelling units in the TCOD
development, including any density bonus units and any
already existing dwelling units. Where the computation results
in a fractional number, the fractional number shall be rounded
up or down to the nearest whole number.

11. Town Center Overlay District
TDR Receiving Area

12. Boynton Meadows – TCOD
Community Preservation Funds
Restored historic building
at 134 Main Street
Addition on the rear of
134 Main Street

13. Subsidized Elderly Housing
SUBSIDIZED ELDERLY HOUSING — Housing in which 50% of the
dwelling units are subsidized under any program or plan that will
result in the development of low- or moderate-income housing, such
housing which the Groton Housing Authority certifies carries
restrictions to limit the eligibility of the occupants and sale price, if
applicable to within guidelines as defined in applicable federal or
state statute, whether built or operated by any public agency or any
nonprofit or limited dividend organization with occupancy reserved
to persons 55 years of age or older.

14. Existing cape converted
to a two-family dwelling
for people 55 and older
Camp in the Lost Lake
area demolished and
replaced with a three-
family dwelling

15. Accessory Apartments
The Board of Appeals shall provide special consideration
to an application for an accessory apartment which will
be restricted to a rent affordable to a person or
household of low or moderate income. Affordable to
persons or families qualifying as low or moderate income
shall mean affordable to persons in the Lowell
metropolitan statistical area under the applicable
guidelines of the Commonwealth's Department of
Housing and Community Development earning not more
80% of the median income. The deed restriction for such
unit shall be provided by the Board of Appeals.

16. Planned Multifamily Special Permit
Rivercourt Residences

17. Implementation
Planning Board or ZBA:
• Include clear, concise conditions in the
Special Permit
• Establish a phasing schedule based upon
market-rate building permits or occupancy
permits
• Have flexibility with all parties while keeping
affordable units on track

18. Housing Coordinator
Housing Coordinator is a part-time staff position funded
through the Community Preservation Act housing funds
Housing Coordinator:
– Provides administrative support to the Affordable Housing Trust
and Housing Partnership
– Works with the Boards, developers, and the DHCD on legal
agreements including lottery, regulatory & monitoring
agreements
– Works with prospective buyers, renters, and others with a
housing crises

19. Problems & Solutions
Problem: Buy-out provisions were in place from 1990-
2000 but resulted in no new affordable housing units.
Solution: Housing Authority used funds for down
payment on rental units created under inclusionary
zoning provisions.
Problem: Foreclosure resulted in loss of one
inclusionary unit in a duplex despite local efforts to
mitigate the loss.
Solution: The Affordable Housing Trust will eventually
have enough funds to intervene in foreclosures.

20. Problem: Off-site affordable units were not
constructed because abutters appealed the ZBA
decision to allow construction on a legal non-
conforming lot of record.
Solution: Off-site construction option removed
from the by-law to avoid costly litigation.
Problem: Affordable units may not be required
in a specific section of the Zoning By-Law
Solution: Do not be afraid to ask for affordable
units – many developers will say “yes.”

21. Challenges
Universal accessibility
Increase inventory of rental units
Temporary, emergency housing
Regionalization

22. Michelle Collette, AICP
Town Planner
Groton, Massachusetts
978.448.1105
mcollette@townofgroton.org