Interest in accessory dwelling units takes off, but hemmed in by complex local regs

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The legalization of accessory dwelling units (ADUs) across the state has led to a surge in permit applications and issuances at the municipal level, but the overall production of what are also known as granny flats remains hampered by an overly complex regulatory system, a new report says.

The report, released Wednesday, comes from Boston Indicators, the research arm of the Boston Foundation, and Abundant Housing Massachusetts, an advocacy group that has thrown its shoulder into the YIMBY (Yes in My Backyard) movement.

The ADU mini-boom – an “immediate uptick at a scale of hundreds of homes” – is the result of the 2024 Affordable Homes Act, which took effect in February 2025. It helped lead to 1,600 permit applications and more than 1,200 permits issued, indications of high demand, the report said. A previous study from 2018 showed 100 Greater Boston cities and towns permitting them at an annual average of 2.5 ADUs per community.

But the 2025 numbers still fall short of the production that’s needed as the state faces a housing crisis in which demand outpaces supply. The Healey administration has promoted a goal of more than 220,000 new units of housing over the next decade. Administration projections had suggested legalization would lead to 8,000 to 10,000 homes in five years.

The report offers two takeaways: First, state-level housing reforms – which have drawn some grumbling and legal action from municipalities that want to hold onto control through local regulations – can accomplish “more in one year than 50 years of local reform did.” Second, the next step is to go beyond zoning reforms geared towards increasing housing production.

“A comprehensive agenda is needed to address regulatory barriers to housing production, spanning building, fire, energy, septic system, wetlands, and stormwater rules,” the report said. “The barriers include the fragmented complexity of the regulatory system itself.”

The state’s ADU regulations, which drew disagreements on a quieter level than the MBTA Communities Act, still took municipal authority into account, creating confusion given how many local requirements there are, according to the report. And like the MBTA Communities law, Boston is exempted from the statewide ADU legalization, and is carving its own, slower path.

Boston still led the list of communities that permitted the most ADUs last year: City Hall took in 69 applications and 44 permits. Plymouth was next (42 applications and 34 permits), followed by Lawrence (44 applications and 32 permits) and Nantucket (27 applications and 27 permits). 

The report suggested regionalization of permit review processes: “Massachusetts has 351 cities and towns, most of them small, each with its own staffing, boards, inspection schedules, logistical demands, and informal enforcement norms. Many municipalities lack the staff and technical expertise to run the project reviews, especially if permitting activity were to pick up. Franklin County offers a model of regionalized permitting.”

The report was the result of ADU builders, architects and homeowners who took matters into their hands, or are considering building one. Advocates, attorneys, local officials and state agency staffers were also interviewed.

An online event presenting the report’s findings, led by Boston Indicators’ Amy Dain, is scheduled for 9:30 a.m., with a panel discussion to follow. The panel includes Meredith Boericke of the Massachusetts Housing Partnership, Chris Lee of construction company Backyard ADUs, and Claire Morehouse of the Executive Office of Housing and Livable Communities.

California, which first adopted ADU changes in 2016 and then took on additional reforms has us beat: 150,000 permitted over the last decade, and 80,000 built in the same period, per the Boston Indicators report. What’s your take on the report? Send it along here: [email protected].

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9:00 | Mayor Michelle Wu announces Boston's 2026 comprehensive summer safety plan for all residents, families, and communities. | Walsh Playground, 1005 Washington Street, Dorchester

10:30 | A topping-off ceremony is held at the first building of the Northland Newton Development, which organizers say is transforming 23 acres of "outdated" retail and industrial space. The development is poised to create 822 rental homes, including 145 affordable units, plus 96,000 square feet of retail space across nine buildings. Speakers include Newton Mayor Marc Laredo and Deputy Housing Secretary Jennifer Maddox. | 285 Needham St., Newton Upper Falls

11:30 | Lieutenant governor candidate Shawn Oliver plans to deliver his certified signature papers to the Secretary of State’s office. | State Elections Division, One Ashburton Place, Boston 

12:00 | The MassDOT Board meets. | 10 Park Plaza, MassDOT Board Room, Boston | More Info | Watch

12:00 | The Governor's Council meets and could take action on Gov. Maura Healey's controversial nomination of Vincent DeMore to the Parole Board. More than 400 people signed onto a letter to the council opposing DeMore's professional background. Lt. Gov. Kim Driscoll chairs. | Council Chamber | Livestream

1:00 | Lt. Gov. Kim Driscoll, Economic Development Secretary Eric Paley, Education Secretary Stephen Zrike and top education officials gather for a STEM Summit. | 110 Canal Street, Lowell | Livestream

1:00 | Attorney General Andrea Campbell plants flags at Home Base’s annual Memorial Day Flag Garden. | Boston Common, 139 Tremont St., Boston

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Gov. Maura Healey appointed three new people to the Cannabis Control Commission a month after signing legislation that blew up the troubled regulatory agency. The size went down to three from five, and appointment power was centralized in the governor’s office. None of the previous commissioners returned in what Healey called a “fresh start.” The commission’s new members are Christopher Harding, Xiomara DeLobato and Anthony Wilson. DeLobato comes from the Western Massachusetts Economic Development Council, and Wilson has been a municipal official in Springfield and Cambridge. Harding, the new chair, is a former state revenue commissioner who worked as chief of staff in Healey’s health and human services secretariat. He is also a New York Jets fan who was once profiled in the New York Times for it. (Kudos to State House News Service’s Colin Young for catching that.) When informed about Harding’s Jets fandom and asked how he made it through the vetting process, Patriots fan Healey said, “Oh come on,” and then shrugged. “[The Jets] suck anyway,” she said.

As attorney general, Healey opposed legalizing recreational marijuana in 2016. As an initiative seeking to eliminate retail pot shops makes its way toward the November ballot, Gov. Healey indicated that she is opposed to it. “Suffice to say I support the cannabis industry here in Massachusetts, and would not want to see that altered in any way,” she said. A recent poll released by the Retailers Association of Massachusetts found 41% would vote in favor, while 48% oppose the question. The poll of 608 registered voters, conducted by Andover-based Polity Research Consulting between April 29 and May 7, found 11% said they didn’t know how they’d vote.

Senate President Karen Spilka is hoping to boost the numbers for the chamber’s official newsletter. “Sign up for Substack,” she said during a recent appearance at a meeting of the Associated Industries of Massachusetts. The “Gavel Drop” Substack, which pledges to be “your direct line for the latest news, legislative updates, and behind-the-scenes insights” from the Senate, had 334 subscribers as of Tuesday. The Senate launched the newsletter in January after coming under fire from Auditor Diana DiZoglio and transparency-focused critics of Beacon Hill. (Hat tip to the State House News Service’s Ella Adams for passing Spilka’s comment along.)

MASSDOT SCANDAL: A months-long investigation by Boston 25 showed high-earning MassDOT maintenance workers in Charlestown submitted timecards that did not line up with what they were actually doing. MassDOT has placed the employees on leave and started its own investigation. – Boston25

LOCAL AID FUNDS: Senate President Karen Spilka said the loss of federal revenues, rather than the Legislature, that’s to blame for state aid to cities and towns falling short of what local officials have asked for. – Boston Herald

MARKEY-MOULTON DEBATE: U.S. Sen. Ed Markey will face off against Democratic primary challenger Seth Moulton on Thursday, Aug. 20, days before the start of early voting. A media consortium is behind the hour-long debate, involving WBUR, WCVB-TV and the Boston Globe. – WBUR

TOLMAN HIRED AS ADVISER: Facing union contract negotiations, Somerville Mayor Jake Wilson has hired Steve Tolman, the former labor leader and state senator, as an adviser. Wilson said he was inspired by Boston Mayor Michelle Wu’s hiring of Lou Mandarini III. – Boston Globe

GAS PIPELINE EXPANSION: The Canadian company Enbridge has proposed an expansion of a natural gas pipeline, a proposal that’s landing during Gov. Maura Healey’s reelection bid and a heated debate over the future of energy in Massachusetts. – CommonWealth Beacon

PAY RAISE BATTLE: Boston councilors Ed Flynn and Erin Murphy are pushing for the rescinding of pay raises for Mayor Michelle Wu and the City Council, citing budget woes. The pay raises were approved in 2022. – Boston Herald

STATE OF HOLYOKE: In his state of the city, Holyoke Mayor Joshua Garcia welcomed another budget surplus, touted financial reforms and welcomed the return of local control of the city’s schools. – MassLive

CAMPUS COMPETITION: If Quincy Mayor Tom Koch is unable to secure City Council approval for the $21 million purchase of the former Eastern Nazarene College campus, other buyers could step in, the city solicitor said. – Patriot Ledger

NANTUCKET BYLAW: Attorney General Andrea Campbell’s office has upheld a bylaw amendment that legalized Nantucket short-term rentals by-right. The bylaw amendment was approved during a special town meeting last November, but attorney Nina Pickering-Cook asked for the AG’s review. – Nantucket Current

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