Swampscott Select Board Meeting Analysis: April 3, 2024

1. Agenda

Based on the transcript, the likely agenda for the meeting followed this approximate order:

1. Call to Order & Pledge of Allegiance 0:07
2. Town Administrator’s Report (Postponed) 0:07
3. Public Comment 1:14
   • Art Friedman: ARPA funds for Fisherman’s Beach effluent, in-town water testing.
   • Andrea Amor: ARPA funds prioritization for EPA consent decree obligations (Fisherman’s Beach).
   • Rachel Taradash: Update and request for help finding a new location for Big Blue Bargains.
   • Eric Schneider (via Teams): Revenue ideas (PILOTs, stormwater fee, transfer tax, federal grants).
4. New Business: Presentation of 2024 Beach Sticker Design 11:13
5. New Business: An Emerging Vision for the Hawthorne Property 18:13
   • Presentation by Town Administrator and Director of Community & Economic Development.
   • Board Questions & Initial Feedback.
   • Public Comment on Hawthorne Vision.
6. New Business: Discussion & Possible Vote to Open Annual Town Meeting Warrant (May 20, 2024) 1:33:46
   • Review of draft articles.
   • Discussion on specific articles (Stabilization Funds, Retained Earnings, Capital Process, Zoning, Leaf Blower Fines, Charter Change, Retirement COLA).
7. New Business: Discussion & Possible Vote on Use of Town ARPA Funds 2:07:09 (Discussion deferred to next meeting).
8. New Business: Discussion & Possible Vote to Open Warrant for Town Election 2:24:24
9. Votes of the Board: Approval of the Consent Agenda 2:15:05
   • Appointments (Master Plan Committee - assumed approved in bulk).
   • Reappointment (Paul Debole, Board of Registrars - assumed approved in bulk).
   • Approval of Minutes (Multiple dates approved, Feb 12, 2024 removed for correction).
10. Select Board Time 2:16:22
    • Doug Thompson: Update on MVP resiliency grant efforts.
    • Peter Spellios: Remarks appreciating town staff.
    • David Eppley: Announcement of Frank D Feliz Diamond dedication.
    • MaryEllen Fletcher: Request regarding Clark School playground gate, thanks to veterans group, CPA outreach suggestion, update on pickleball court research.
11. Adjournment 2:28:25

2. Speaking Attendees

• David Eppley (Select Board Chair): [Speaker 3]
• Peter Spellios (Select Board Member): [Speaker 1]
• Katie Phelan (Select Board Member): [Speaker 4]
• MaryEllen Fletcher (Select Board Member): [Speaker 5]
• Doug Thompson (Select Board Member): [Speaker 6]
• Sean Fitzgerald (Town Administrator): [Speaker 2]
• Marsy Golaska (Director of Community and Economic Development): [Speaker 8]
• Amy McHugh (Director of Finance and Administration / Town Accountant): [Speaker 11]
• Art Friedman (Resident): [Speaker 13]
• Andrea Amor (Resident): [Speaker 12]
• Rachel Taradash (Big Blue Bargains Representative): [Speaker 10]
• Eric Schneider (Resident, Town Meeting Member, Finance Committee Member): [Speaker 14]
• Aaron Goldman (Resident): [Speaker 16]
• Sierra Munoz (Resident, OSRC/Conservancy Representative): [Speaker 9]
• Louis Chisoula (Resident): [Speaker 7]
• Cindy (?) (Resident - Identified via Teams): [Speaker 17]
• Elizabeth Papaletto (Resident): [Speaker 15]
• A Board Member (Unidentified): [Speaker 18], [Speaker 19] (Brief interjections/vote confirmations)
• Jonathan Nichols (Library Director): (Present, acknowledged by TA Fitzgerald 29:46, did not speak)

3. Meeting Minutes

Call to Order: Chair Eppley called the meeting to order and led the Pledge of Allegiance 0:07. The Town Administrator’s report was postponed.

Public Comment: 1:14

• Art Friedman urged the Board to use ARPA funds for Fisherman’s Beach effluent mitigation and consider purchasing water testing equipment for more frequent, local testing 1:26.
• Andrea Amor emphasized the town’s obligation under the 2015 EPA consent decree regarding Fisherman’s Beach, urging significant ARPA funding allocation as a matter of integrity and fulfilling promises, contrasting obligations versus “nice-to-haves” 2:27.
• Rachel Taradash, representing Big Blue Bargains thrift store, described their community contributions and requested the Board’s help in finding a new location as their temporary space is ending 5:09.
• Eric Schneider (via Teams), speaking as a resident, suggested potential new revenue streams: pursuing Payments In Lieu of Taxes (PILOTs) from non-profits, implementing a stormwater fee, seeking federal infrastructure grants, and considering a real estate transfer tax 8:40.

Beach Sticker Presentation: 11:13 Member Spellios presented the history of the resident-designed beach stickers, now in its fifth year 11:45. The 2024 sticker features a portion of a collage created by Michon Elementary School students before its 2007 closure, honoring the transition to the new unified elementary school 14:20. He credited Ingrid Hale, Hannah Sharpless Graff, and Suzanne Wright for the idea 15:38. Member Phelan acknowledged Member Spellios for originating the concept of artist-designed stickers years ago 17:25. Stickers will be available online at the end of the month.

Hawthorne Property Vision Presentation: 18:13 Town Administrator (TA) Fitzgerald introduced the presentation on an emerging vision for the recently acquired Hawthorne property, thanking staff and consultants HDR 18:47. Director Golaska reviewed the public engagement process (meetings, surveys) and key feedback themes: maintaining open space, public access, waterfront views, year-round destination, and revenue generation 20:46. TA Fitzgerald summarized key findings emphasizing designing an exciting park, celebrating sense of place, enhancing year-round accessibility, and fiscal responsibility (targeting 50% green space) 22:53. Director Golaska described HDR’s analytical design process leading to the concept 25:24. TA Fitzgerald unveiled the preliminary concept: a public library integrated into the landscape 28:46. He highlighted a 21st-century library’s potential as a multi-generational hub, information center, and community space, potentially including revenue-generating elements like a cafe, catering kitchen, and event space 29:46. He noted the existing library’s age (1917) and needs, the potential for state library construction funding, and the project’s long-term nature (6+ years) 31:04. He presented renderings comparing the existing site to the future vision 32:32, 33:50.

Hawthorne Vision - Board Discussion & Public Comment:

• Member Spellios confirmed a public forum would be held later in April/early May 36:50.
• Member Fletcher expressed concern about the limited number of prior public meetings, questioned survey findings on finances not being a priority, asked if other concepts were considered (TA: No), and inquired about cost 37:25.
• Member Spellios responded, framing the concept as an “idea” for public reaction, not a final plan 39:20. He discussed the potential ~$30 million estimated cost (today’s dollars) and likely funding mix (state library grants, potentially private funds) 42:26. He expressed hope and the need for vision, comparing the potential impact to the new elementary school 45:12. He praised the landform architecture concept for integrating the building with open space 47:56.
• Member Phelan acknowledged the challenge HDR faced synthesizing diverse community input 48:50. She praised the library concept’s equity, potential revenue streams, synergy with the future Hadley hotel (Delamar), and the importance of continued public input through various methods 50:05. She stressed the need to continue maintaining the current library 52:32.
• Chair Eppley supported the library vision, citing libraries as community heartbeats, the appealing landform architecture, the potential for economic development/foot traffic on Humphrey Street, revenue generation, and fulfilling the promise of open space 54:38.
• Member Spellios reported positive initial feedback from Delamar (Hadley hotel developer) after they were briefed on the concept 59:35.
• Public commenters offered feedback: Aaron Goldman supported the library, suggesting a coffee shop and potential public housing use for the old library building 1:02:34. Sierra Munoz supported the discussion but urged prioritizing high-quality green infrastructure, environmental standards (LEED), and accessible community spaces beyond revenue generation 1:04:14. Art Friedman raised concerns about parking and building size/functionality 1:07:57. Member Spellios noted the existing parking agreement with St. John’s church 1:09:30. TA Fitzgerald addressed size, noting the property’s acreage and reliance on architectural expertise 1:10:32. Louis Chisoula requested interior renderings and asked about multi-use activation (yoga, community rooms, outdoor features, potential rooftop use) 1:13:16. TA Fitzgerald and Member Phelan emphasized the phased process and community input shaping the interior 1:17:45, 1:18:32. Cindy (?) asked about ADA accessibility 1:23:34; Member Phelan confirmed compliance would be required 1:24:38. Elizabeth Papaletto questioned briefing Delamar before the public and emphasized respecting existing community connections 1:25:44; Spellios and Phelan clarified the communication’s nature 1:26:21, 1:27:54.
• Member Fletcher reiterated the need for financial assumptions 1:28:59. Member Spellios suggested comparative cost analyses for different levels of development (e.g., park only vs. building) 1:29:12. TA Fitzgerald noted revenue generation wasn’t the top survey priority but acknowledged financial realities and the public health value of open space 1:30:46. The Board discussed scheduling the public forum 1:33:16. TA Fitzgerald stated presentation slides would be on the website tonight 1:33:43.

Town Meeting Warrant Opening & Review: 1:33:46 TA Fitzgerald began review of draft warrant articles for the May 20 Town Meeting.

• Articles 1-3 (Reports, Prior Year Bills, Budget) noted as standard. FinCom currently reviewing budget 1:34:11.
• Article 4 (Recruitment/Retention Stabilization Fund): Fletcher questioned the need versus operating budget 1:38:40; Fitzgerald explained rationale re: staffing volatility 1:38:55. Placeholder amount.
• Article 5 (Utility Stabilization Fund): Fitzgerald explained rationale re: fluctuating costs 1:36:10. Placeholder amount.
• Articles 7 & 8 (Water/Sewer Retained Earnings): Fletcher questioned use given capital needs 1:39:53. Spellios identified as rate stabilization 1:40:30. Finance Director McHugh clarified it’s needed to cover projected deficits due to lower-than-expected consumption 1:40:52. Discussion ensued on rate setting, conservation impact, and modeling for FY25 including potential capital debt 1:41:22, 1:43:02. TA Fitzgerald mentioned exploring raising sewer rates closer to peer communities to fund infrastructure 1:44:13.
• Article 9 (Opioid Settlement Funds): Explained use for Board of Health programs 1:45:05.
• Article 10 (Special Education Reserve Fund): TA explained stabilization goal 1:45:18. McHugh clarified approval process 1:47:26. Spellios questioned its function as true stabilization if depleted annually 1:48:03. Thompson asked about spending trends 1:48:58. Source: Free Cash 1:50:11.
• Articles 11 & 12 (Revolving Funds - Andrews Chapel, Historical Commission): Explained purpose 1:50:11.
• Article 13 (Community Preservation Act Adoption): Noted as important funding program 1:51:00. Thompson announced public info session next Tuesday at High School 1:51:18.
• Article 14 (Chapter 90): Standard state road funding 1:52:00.
• Article 15 (Capital Projects): Fletcher questioned process, noting FinCom review before Select Board input 1:52:20. Discussion followed about the proper sequence per town charter/bylaws vs. current practice (Spellios, Fletcher, Fitzgerald agreeing process needs alignment) 1:53:13. Board will review Capital recommendations next meeting 1:55:34.
• Articles 16-19 (Zoning Bylaw Amendments - ADUs, etc.): Deferred discussion to Planning Director presentation on April 10 1:55:51.
• Article 20 (Leaf Blower Fines): Fitzgerald noted need for bylaw amendment to implement fines for existing summer gas leaf blower ban 1:56:35. Discussion deferred pending draft language 1:58:00. Citizen petition to reverse ban also noted 1:57:16.
• Article 21 (Fingerprinting Bylaw): Fitzgerald explained purpose to avoid redundant fingerprinting for certain license applicants 1:58:27.
• Article 22 (Charter Amendment - Appoint Assessors): Fitzgerald introduced concept 1:59:58. Fletcher objected to proposing charter change without prior public discussion 2:00:32. Discussion deferred pending language 2:00:45.
• Article 23 (Easement Acceptance - Elm Place): Fitzgerald introduced 2:01:04. Spellios clarified it formalizes public access to parking spaces in the completed Westcott development 2:01:18.
• Article 24 (Appropriation - Archer Street Property Improvements): Fitzgerald requested $225k (grant-funded) for trail creation 2:02:04. Fletcher raised issue of needing Select Board approval before applying for grants per town financial policy 2:03:07. Eppley questioned policy’s practicality; Fletcher/Spellios noted it’s existing policy 2:04:18. Fitzgerald agreed to focus on compliance 2:03:34.
• Article 25 (Citizen Petition - Gas Leaf Blowers): Noted as mandatory inclusion 2:02:04.
• Retirement Board COLA Article: Fletcher noted submission 2:05:39. Fitzgerald explained request to increase COLA base 2:05:54. Spellios requested financial impact presentation from staff and Retirement Board 2:06:13. Thompson clarified Retirement Board articles aren’t automatic 2:06:40.
• TA Fitzgerald committed to providing updated warrant language promptly 2:07:09. Board requested it several days before next meeting.

ARPA Funds Discussion: 2:07:09 Finance Director McHugh presented remaining balance (~$2.15M, pending minor adjustments) 2:09:37. Spellios noted the departmental recommendations shown were previously presented and requested moving directly to specific allocation proposals next week 2:08:38. Fletcher asked for clarification on a “Kings Beach Water Quality Engineering” item 2:11:38. This led to consensus that updated, integrated information connecting ARPA, Capital, and Sewer/Water funding is needed before decisions can be made 2:12:33, 2:13:16. Discussion deferred to April 10th meeting.

Election Warrant Opening: 2:24:24 Chair Eppley realized the item was skipped. Motion: To open the warrant for the Town Election. Vote: Approved unanimously.

Consent Agenda: 2:15:05 Member Fletcher requested removal of Feb 12, 2024 minutes for correction regarding resident comment accuracy 2:15:39. Motion: Spellios moved to approve the consent agenda minus Feb 12 minutes. Second: (Implied). Vote: Approved unanimously (Aye votes heard) 2:16:08.

Select Board Time: 2:16:22

• Member Thompson updated the board on coordinated efforts (various committees, staff, Kleinfelder) to prepare Municipal Vulnerability Preparedness (MVP) and Coastal Resiliency grant applications, likely focusing on the Fisherman’s/Eisman’s/Phillips Park area for MVP, aiming for 10% design level output 2:16:27.
• Member Spellios expressed appreciation for town staff’s hard work and willingness to put forward ideas like the Hawthorne concept, acknowledging the challenges and occasional “demoralizing” nature of the public process 2:20:58.
• Chair Eppley announced the formal dedication of the Frank D Feliz Diamond at the High School baseball field on Saturday, April 27th at 10 am 2:24:24.
• Member Fletcher requested TA follow-up on installing a needed gate at the Clark School playground 2:25:24. She thanked the Disabled Veterans Association for the Vietnam Veterans breakfast 2:26:00. She advocated for multiple CPA information sessions or recordings 2:26:55. She reported meeting with Sport Court regarding potential conversion of the existing tennis court to accommodate four pickleball courts alongside tennis, and asked TA/Marzi Golaska to review the information 2:27:04.

Adjournment: 2:28:25 Motion: To adjourn. Second: (Multiple). Vote: Approved unanimously.

4. Executive Summary

Hawthorne Property Future Takes Shape with Library Concept: The Select Board reviewed a preliminary vision for the Hawthorne property, prominently featuring a new public library integrated into the landscape 18:13. Presented by Town Administrator Sean Fitzgerald, the concept aims to create a year-round, multi-generational community hub with potential revenue streams (cafe, event space) while preserving significant open space and waterfront access 28:46. Board discussion revealed enthusiasm for the vision’s potential to create a landmark facility [45:12, 48:50, 54:38] but also raised pragmatic concerns regarding the estimated $30 million cost, funding sources (state grants, private funds anticipated 42:26), and the need for extensive public input moving forward 37:25. Significance: This proposal initiates a multi-year process to define the future of a key town asset. It represents a potentially transformative investment in community infrastructure but requires substantial financial planning and broad resident engagement. A public forum is planned soon 36:50.

Town Meeting Warrant Opened, Key Issues Emerge: The Board opened the warrant for the May 20 Annual Town Meeting 1:33:46, reviewing numerous draft articles. Key items generating discussion included proposals for new stabilization funds (Recruitment, Utility) 1:36:10, the use of retained earnings to balance water/sewer budgets impacted by conservation 1:39:53, further funding for the Special Education Reserve 1:46:33, adoption of the Community Preservation Act (CPA) 1:51:13, and a potential charter change to make the Board of Assessors appointed rather than elected 2:00:32. Concerns were raised about process, particularly regarding the Capital Improvement Plan review sequence 1:52:20 and adherence to grant application policies 2:03:07. Significance: The warrant contains significant financial and policy proposals affecting town operations, finances, and potentially governance structure. Many articles require finalized language and financial details, expected for review at the next meeting. The CPA represents a major potential new funding source for community projects.

ARPA Funding Decision Deferred Amidst Calls for Water Quality Focus: Discussion on allocating the remaining ~$2.1M in federal ARPA funds was postponed to the next meeting 2:11:04. This deferral came after board members highlighted the need for updated and integrated financial data, particularly concerning complex water quality initiatives like those at Kings/Fisherman’s Beach 2:12:33. Public commenters strongly advocated for prioritizing ARPA funds towards fulfilling the town’s obligations under the EPA consent decree for Fisherman’s Beach [1:26, 2:27]. Significance: The allocation of these one-time funds is a critical decision balancing urgent infrastructure needs, mandatory obligations, and other community priorities. Integrating ARPA with capital and enterprise fund planning is crucial for a strategic approach.

Community Voices Heard: Public comment periods highlighted pressing community issues: the urgency of addressing beach water quality [1:26, 2:27], the need for a new home for the non-profit Big Blue Bargains 5:09, and resident ideas for new town revenue streams 8:40. During the Hawthorne discussion, residents voiced support while also raising practical concerns about parking, accessibility, cost, and desired uses [1:02:34 - 1:27:54].

Other Developments: The 2024 beach sticker design, honoring the former Michon School, was unveiled 11:45. The Board advanced work on resiliency grants (MVP) 2:16:27, approved most consent agenda items 2:15:05, opened the Town Election warrant 2:24:24, and discussed various local matters during Select Board time, including pickleball court possibilities 2:27:04.

5. Analysis

Hawthorne Vision: A Calculated Risk in Community Building: The unveiling of the Hawthorne library concept 28:46 represents a significant strategic move by the administration. Presenting a single, bold vision—rather than multiple watered-down options—effectively forced a substantive debate, moving beyond abstract desires expressed in earlier feedback sessions 20:46. TA Fitzgerald’s presentation skillfully blended aspirational rhetoric (“extraordinary moment,” “iconic property”) 18:47 with practical justifications (multi-generational use, state funding potential, revenue streams) 29:46. Board members Spellios and Phelan strongly embraced this visionary framing [42:26, 48:50], attempting to build momentum by emphasizing opportunity and community benefit (“hope,” “equitable”). However, Member Fletcher’s persistent questioning on cost, process, and alternatives [37:25, 1:28:47] served as a crucial check, reflecting likely voter concerns about affordability in a town facing infrastructure challenges. While the administration acknowledged the ~$30M estimate and long timeline 42:26, the lack of detailed financials or alternative concepts at this stage leaves the proposal vulnerable to critiques of being predetermined or fiscally opaque. The strategy appears to be: capture imagination first, wrestle with details later. Its effectiveness hinges on translating initial excitement into sustained support through the forthcoming, multi-year public process and securing significant external funding.

Warrant Process Underscores Governance Tensions: The warrant review 1:33:46 was less a finalization than an exposé of ongoing process challenges and differing philosophies of governance. The numerous placeholder articles and requests for language 1:59:16 suggest a system straining to meet deadlines, placing considerable pressure on staff for rapid turnaround 2:07:09. The debate over the Capital Improvement process 1:52:20 and grant policy adherence 2:03:07 highlighted a recurring tension: the Select Board’s desire for policy oversight (Fletcher, Spellios) versus the administration’s operational needs and perhaps a differing view on the Board’s role (suggested by Eppley’s query 2:03:38). Fletcher’s immediate objection to the proposed charter change (appointed assessors) 2:00:32 based on lack of public vetting underscores sensitivity around altering voter-approved structures without extensive dialogue, potentially foreshadowing significant debate at Town Meeting. The administration’s introduction of potentially controversial items like stabilization funds and charter changes with minimal detail seems aimed at initiating Board discussion, but risks appearing unprepared or dismissive of the need for fully formed proposals at this stage.

ARPA & Infrastructure: The Unresolved Nexus: The deferral of ARPA allocation decisions 2:11:04 reflects the complex and politically charged nature of prioritizing infrastructure needs. Public commenters Amor and Friedman delivered powerful arguments framing Fisherman’s Beach funding as a non-negotiable “obligation” [1:26, 2:27], implicitly challenging the Board to demonstrate commitment to the EPA consent decree. The Board’s recognition that ARPA funds cannot be decided in isolation from capital planning and sewer/water rate implications 2:12:33, 2:13:16 is financially prudent but delays addressing these urgent calls. The “murkiness” acknowledged by Member Spellios 2:13:16 points to a need for a comprehensive financial strategy that clearly articulates how various funding sources (ARPA, grants, enterprise funds, potential CPA) will collectively tackle the town’s significant infrastructure backlog, including mandated projects. The administration faces the challenge of presenting this integrated picture effectively at the next meeting.

Staff Role and Board Dynamics: Member Spellios’s remarks acknowledging staff efforts and the difficulty of advancing ideas in the public sphere 2:20:58 were notable. They implicitly recognized the dynamic where staff generate proposals (like Hawthorne) that the elected board must then navigate through potentially contentious public scrutiny. The meeting demonstrated the Board functioning largely collaboratively but with distinct perspectives: Spellios leveraging history and detail, Fletcher probing finances and process, Phelan championing community building and equity, Thompson focusing on specific initiatives (CPA, resiliency), and Eppley facilitating while supporting forward-looking projects. This interplay shapes the town’s direction, balancing ambition with fiscal caution and procedural adherence.