Massachusetts 2025-2026 Regular Session

Massachusetts Senate Bill S2009 Compare Versions

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22 SENATE DOCKET, NO. 663 FILED ON: 1/14/2025
33 SENATE . . . . . . . . . . . . . . No. 2009
44 The Commonwealth of Massachusetts
55 _________________
66 PRESENTED BY:
77 Cindy F. Friedman
88 _________________
99 To the Honorable Senate and House of Representatives of the Commonwealth of Massachusetts in General
1010 Court assembled:
1111 The undersigned legislators and/or citizens respectfully petition for the adoption of the accompanying bill:
1212 An Act relative to regional transportation ballot initiatives.
1313 _______________
1414 PETITION OF:
1515 NAME:DISTRICT/ADDRESS :Cindy F. FriedmanFourth MiddlesexMichael J. BarrettThird Middlesex2/3/2025 1 of 13
1616 SENATE DOCKET, NO. 663 FILED ON: 1/14/2025
1717 SENATE . . . . . . . . . . . . . . No. 2009
1818 By Ms. Friedman, a petition (accompanied by bill, Senate, No. 2009) of Cindy F. Friedman and
1919 Michael J. Barrett for legislation relative to regional transportation ballot initiatives. Revenue.
2020 [SIMILAR MATTER FILED IN PREVIOUS SESSION
2121 SEE SENATE, NO. 1828 OF 2023-2024.]
2222 The Commonwealth of Massachusetts
2323 _______________
2424 In the One Hundred and Ninety-Fourth General Court
2525 (2025-2026)
2626 _______________
2727 An Act relative to regional transportation ballot initiatives.
2828 Be it enacted by the Senate and House of Representatives in General Court assembled, and by the authority
2929 of the same, as follows:
3030 1 SECTION 1. The General Laws are hereby amended by inserting after Chapter 64N the
3131 2following chapter:-
3232 3 CHAPTER 64O. LOCAL AND REGIONAL TRANSPORTATION BALLOT
3333 4INITIATIVES
3434 5 Section 1. For purposes of this chapter, the following terms shall, unless the context
3535 6clearly requires otherwise, have the following meanings:
3636 7 “District agreement”, a document specifying the terms and conditions of the powers and
3737 8duties of the 2 or more municipalities forming a district under section 4 of this chapter, pursuant
3838 9to the laws governing any such municipality, this chapter and such procedural regulations as the
3939 10commissioner of revenue may promulgate. 2 of 13
4040 11 “Governing body”, in a city having a Plan D or Plan E charter the city manager and city
4141 12council and in any other city the mayor and the city council and in towns the board of selectmen
4242 13or equivalent body.
4343 14 “Single subject of taxation”, 1 tax mechanism, including sales, real or personal property,
4444 15room occupancy, vehicle excise, local vehicle excise, local transportation network company
4545 16surcharge, local commercial parking surcharge, or any other tax then authorized to be assessed or
4646 17collected by the commonwealth or any city or town, as determined annually by the board of
4747 18assessors or department of revenue, that the city or town, or district, may subject to the tax
4848 19surcharge.
4949 20 “Transportation project”, a project or program involving the planning, design or
5050 21construction of public or mass transportation transit systems, transit-oriented development,
5151 22roads, bridges, bikeways, pedestrian pathways, and other transportation-related projects.
5252 23 Section 2. (a) This chapter shall take effect in any city or town upon the approval of its
5353 24governing body and its acceptance by the voters of any city or town by a ballot question as set
5454 25forth in section 3.
5555 26 (b) A city or town may impose any tax surcharge within its city or town on a single
5656 27subject of taxation subject only to the condition that such tax is a surcharge on a tax then
5757 28authorized by state law; provided, however, that no tax surcharge shall be imposed within the
5858 29city or town unless it has first been approved by the governing body of such city and town and
5959 30accepted by a majority of the voters of a city or town through a ballot question as set forth in
6060 31section 3, except as provided in section 4. 3 of 13
6161 32 (c) Notwithstanding chapters 59, 60A, 62, 64H or any other general or special law to the
6262 33contrary but subject to the provisions of this chapter, the governing body of any city or town may
6363 34vote to accept the provisions of this chapter authorizing a surcharge on a single subject of
6464 35taxation, as determined annually by the board of assessors or department of revenue. A
6565 36governing body that intends to accept the provisions of this chapter shall determine prior to
6666 37approval by the voters which single subject of taxation will be levied and the amount and rate of
6767 38surcharge. For a real or personal property tax surcharge, the amount of the surcharge shall not be
6868 39included in a calculation of total taxes assessed for purposes of section 21C of chapter 59.
6969 40 (d) All exemptions and abatements of any single subject of taxation for which a taxpayer
7070 41qualifies as eligible shall not be affected by this chapter. A taxpayer receiving an exemption for
7171 42any single subject of taxation shall be exempt from any tax surcharge on any single subject of
7272 43taxation established under this section. The tax surcharge to be paid by a taxpayer receiving an
7373 44abatement of any single subject of taxation shall be reduced in proportion to the amount of such
7474 45abatement.
7575 46 (e) Any amount of the tax surcharge not paid by the due date shall bear interest at the rate
7676 47per annum as authorized by the law for any single subject of taxation.
7777 48 (f) Revenues raised through the tax surcharge shall be separately accounted for and used
7878 49by the city or town for transportation projects.
7979 50 Section 3. (a) Upon approval by the governing body, the actions of the governing body
8080 51shall be submitted for acceptance to the voters of a city or town at the next regular municipal or
8181 52state election. The city or town clerk or the state secretary shall place it on the ballot in the form
8282 53of the following question: “Shall this (city or town) accept sections 2 to 5, inclusive of chapter 4 of 13
8383 5464O of the General Laws, as approved by its (governing body), a summary of which appears
8484 55below
8585 56 (Set forth here a fair, concise summary and purpose of the law to be acted upon, as
8686 57determined by the city solicitor or town counsel, including in the summary the specific single
8787 58subject of taxation to be levied, percentage of the surcharge to be imposed, and time period
8888 59during which the tax will be levied.)”
8989 60 In the ballot question, the city or town may include a list of specific transportation
9090 61projects for which the tax surcharge funds may be used, or a city or town may include a general
9191 62description of the types of transportation projects for which the tax surcharge may be used. The
9292 63city or town shall also include a sunset provision in the ballot question.
9393 64 If a majority of the voters voting on said question vote in the affirmative, then its
9494 65provisions shall take effect in the city or town, or district as set forth under section 4, but not
9595 66otherwise.
9696 67 (b) The final date for notifying or filing a petition with the city or town clerk or the state
9797 68secretary to place such a question on the ballot shall be 60 days before the city or town election
9898 69or 100 days before the state election. For those petitions that will appear on the state election,
9999 70notice shall be given by filing with the state secretary a certified copy of the governing body’s
100100 71approval and include a copy of the summary set forth in subsection (a).
101101 72 (c) If the governing body does not vote to accept the provisions of this chapter, not less
102102 73than 120 days before a regular city or town election or 180 days before a state election, a
103103 74question seeking said acceptance through approval of a particular surcharge amount and
104104 75percentage may be so placed on the ballot when a petition including information about the 5 of 13
105105 76subject of taxation, rate of taxation and project or types of projects is signed by not less than 5
106106 77per cent of the registered voters of the city or town requesting such action is filed with the
107107 78registrars, who shall have 7 days after receipt of such petition to certify its signatures. Upon
108108 79certification of the signatures, the city or town clerk or the state secretary shall cause the question
109109 80to be placed on the ballot at the next regular city or town election held more than 60 days after
110110 81such certification or at the next regular state election held more than 90 days after such
111111 82certification.
112112 83 Section 4. (a) Two or more municipalities may, with the approval of the governing body
113113 84of each city or town thereof, form a district for the purposes of implementing the provisions of
114114 85this chapter.
115115 86 (b) If a majority of the voters in the district, for the purposes set forth in subsection (a),
116116 87vote in the affirmative to form a district for the purposes of implementing the provisions of this
117117 88chapter then the provisions of this chapter shall take effect in the district, but not otherwise.
118118 89 (c) Two or more municipalities that choose to form a district for purposes of this chapter
119119 90shall apply a tax surcharge to their preferred subject of taxation. The amount and percentage of
120120 91the tax surcharge may vary for each municipality that comprises the district.
121121 92 (d) Two or more municipalities forming a district shall adopt a district agreement with
122122 93approval of the applicable governing body prior to presentment to the voters of the 2 or more
123123 94municipalities by a ballot question. The district agreement shall specify: (i) the purpose and
124124 95nature of the arrangement; (ii) the single municipality to serve as the treasurer of the
125125 96transportation fund or the regional planning agency to serve as fiscal agent of the transportation
126126 97fund under section 7 and that said municipality or regional planning agency shall also serve as 6 of 13
127127 98treasurer or fiscal agent for purposes of section 9; (iii) how the transportation fund will be used
128128 99and for what purposes, and how the municipalities will decide on details of use, plan changes or
129129 100urgent circumstances; (iv) the work to be performed, and the division or sharing of responsibility
130130 101among the municipalities; (v) the estimated costs and the methods of financing of the
131131 102transportation projects; (vi) the method of administration of the transportation fund and the
132132 103transportation projects to be paid for through the fund; (vii) the composition of the district’s
133133 104transportation committee, the length of its term, and the criteria and method of selecting its
134134 105members; (viii) the duration of the proposed agreement; and (ix) the amount, type and
135135 106percentage of the tax surcharge for each municipality that comprises the district.
136136 107 (e) Nothing in this section shall be construed to: (i) amend, repeal or otherwise alter the
137137 108authority or jurisdiction of, or establish, a municipality; or (ii) confer any management authority
138138 109over transportation projects beyond the authority exercised by participating municipalities in the
139139 110district agreement set forth in this section and this chapter.
140140 111 Section 5. (a) Upon acceptance of this chapter, the satisfaction of the requirements of this
141141 112chapter and upon the assessors’ warrant to the tax collector, the accepted tax surcharge shall be
142142 113imposed. The city, town, or district, shall notify the commissioner of revenue of the date and
143143 114terms on which the voters accepted this chapter.
144144 115 (b) For a tax surcharge levied on either property or excise tax, after receipt of the warrant,
145145 116the tax collector shall collect the surcharge in the amount and according to the computation
146146 117specified in the warrant and shall pay the amounts so collected, quarterly or semi-annually,
147147 118according to the schedule for collection of the single subject of taxation, to the city’s or town’s
148148 119treasurer, or the district’s treasurer. The tax collector shall cause appropriate books and accounts 7 of 13
149149 120to be kept with respect to such tax surcharge, which shall be subject to public examination upon
150150 121reasonable request from time to time.
151151 122 (c) Two or more municipalities forming a district shall select one of the municipalities or
152152 123the regional planning agency to serve as the district’s treasurer for purposes of this chapter. The
153153 124district agreement shall establish the method of selecting the district treasurer. The municipality
154154 125or regional planning agency selected to serve as district treasurer shall perform duties in
155155 126accordance with section 5 of this chapter and chapter 41. Two or more municipalities forming a
156156 127district shall also select that same municipality or regional planning agency to receive funds and
157157 128provide certification for all municipalities within said district for purposes of section 9 and in
158158 129accordance with section 4.
159159 130 Section 6. (a) A city or town that accepts this chapter, either on its own or as part of a
160160 131district, shall establish by ordinance or by-law and, in the case of a district, the ordinance or by-
161161 132law shall be established by all member municipalities, a transportation committee not more than
162162 13390 days following acceptance of this chapter. The committee shall consist of not less than 5
163163 134members. The ordinance or by-law shall determine the composition of the committee, the length
164164 135of its term and the criteria and method of selecting its members by appointment only. The
165165 136committee shall include, but not be limited to, 1 or more representatives from the municipality, 1
166166 137member of each regional transit authority to which the city or town is a member community, if
167167 138any, 1 member of the regional planning agency to which the city or town is a member
168168 139community and persons, as determined by the ordinance or by-law, acting in the capacity of or
169169 140performing like duties of the department, board or authority if they have not been established in
170170 141the city or town. 8 of 13
171171 142 (b) Each transportation committee shall study the transportation-related needs,
172172 143possibilities, and resources of the city, town or district. The committee shall consult with existing
173173 144transportation agencies, including regional planning agencies, to develop transportation projects
174174 145in accordance with the ballot initiative. If a list of transportation projects for which the tax
175175 146surcharge funds may be used was included in a ballot question, the committee shall include said
176176 147projects in its study; provided, however, that the committee may recommend or not recommend
177177 148said projects.
178178 149 (c) Each transportation committee shall be subject to the requirements of subsection (a)
179179 150of section 19 of chapter 30A. Each transportation committee shall keep a full and accurate
180180 151account of all of its actions, including its recommendations and the action taken on them and
181181 152records of all appropriations or expenditures made from the local and regional transportation
182182 153fund. The records and accounts of the committee shall be public records.
183183 154 (d) Each city, town or district, as applicable, shall consult with the entity proposed to own
184184 155and maintain the transportation project prior to listing any transportation project on the ballot, as
185185 156set forth in this chapter. If a city, town or district, as applicable, includes no specific
186186 157transportation projects in the ballot question, the transportation committee shall receive the
187187 158approval of the regional planning agency prior to submitting the local transportation committee’s
188188 159recommendations to a city council or board of selectmen, unless the transportation-related
189189 160project or activity is solely under local jurisdiction. The city, town, or district shall study projects
190190 161that promote access to public transportation, biking, and walking.
191191 162 (e) Not less than once every 2 fiscal years, each transportation committee shall make
192192 163recommendations to the governing body of the applicable city or town or to the district regarding 9 of 13
193193 164efficient and effective ways to improve and enhance local transportation systems in such city,
194194 165town or district. Recommendations to the governing body or district shall include anticipated
195195 166costs over the life cycle of the transportation project. The committee may include in its
196196 167recommendation to the governing body or district a recommendation to set aside for later
197197 168spending funds for specific purposes that are consistent with transportation-related purposes but
198198 169for which sufficient revenues are not currently available in the local and regional transportation
199199 170fund, as set forth in section 7, to accomplish that specific purpose, to satisfy debt payments
200200 171incurred from transportation-related projects or to set aside for later spending funds for general
201201 172purposes that are consistent with transportation improvements and in accordance with the ballot
202202 173initiative.
203203 174 (f) After receiving such recommendations from the transportation committee, the
204204 175governing body or district shall take such action and approve such appropriations from the local
205205 176and regional transportation fund as may be necessary and appropriate for the recommendations
206206 177of the transportation committee, and such additional appropriations as it deems appropriate to
207207 178carry out the recommendations of the transportation committee and in accordance with the ballot
208208 179initiative.
209209 180 Section 7. (a) Notwithstanding section 53 of chapter 44 or any other general or special
210210 181law to the contrary, a city, town or district that accepts the provisions of this chapter shall
211211 182establish a separate account to be known as the local and regional transportation fund, of which
212212 183the municipal treasurer or fiscal agent shall be the custodian. The authority to approve
213213 184expenditures from the fund shall be limited to the governing body or any city or town, or the
214214 185designated municipality treasurer or regional planning agency of the district, as applicable, and
215215 186the municipal treasurer or fiscal agent shall pay such expenditures in accordance with chapter 41. 10 of 13
216216 187 (b) Two or more municipalities forming a district shall select 1 of the municipalities or
217217 188regional planning agency to establish a separate account known as the local and regional
218218 189transportation fund. The municipality or regional planning agency selected to establish said fund
219219 190shall only use the funds for the district as a whole through the designated fiscal agent and based
220220 191solely upon the recommendations and approvals of the transportation committee as set forth in
221221 192this chapter. Administration of the fund by the fiscal agent may, at the option of the governing
222222 193body of any member city or town, be subject to the further approval of such governing body.
223223 194 (c) The following monies shall be deposited in the local and regional transportation fund:
224224 195(i) all funds collected from the tax surcharge on any single subject of taxation pursuant to section
225225 1963, except if the single subject of taxation is a tax collected at the state level which shall be
226226 197deposited with the department of revenue in accordance with sections 8 and 9; and (ii) all funds
227227 198received from the commonwealth or any other source for such purposes. The treasurer or fiscal
228228 199agent may deposit or invest the proceeds of the fund in savings banks, trust companies
229229 200incorporated under the laws of the commonwealth, banking companies incorporated under the
230230 201laws of the commonwealth that are members of the Federal Deposit Insurance Corporation or
231231 202national banks, or may invest the proceeds in paid up shares and accounts of and in co-operative
232232 203banks or in shares of savings and loan associations or in shares of federal savings and loan
233233 204associations doing business in the commonwealth or in the manner authorized by section 54 of
234234 205chapter 44 and any income therefrom shall be credited to the fund. The expenditure of revenues
235235 206from the fund shall be limited to implementing the recommendations of the transportation
236236 207committees, to providing administrative and operating expenses to the committees, and in
237237 208accordance with the ballot initiative. The city or town, or the municipality treasurer or regional 11 of 13
238238 209planning agency of the district as set forth in section 4, shall be prohibited from diverting
239239 210revenues derived from the tax surcharge into any other fund created by law or ordinance.
240240 211 (d) Only those cities and towns or districts that adopt the tax surcharge allowed by this
241241 212chapter shall be eligible to receive monies through the local and regional transportation fund.
242242 213 Section 8. (a) There shall be established and set up on the books of the commonwealth a
243243 214separate fund, to be known as the Massachusetts local and regional transportation trust fund, for
244244 215the benefit of cities, towns, or districts that have accepted the provisions of this chapter and have
245245 216imposed a tax surcharge on a tax collected by the commonwealth, subject to any exemptions
246246 217adopted by a municipality or district. The fund shall consist of all revenues received by the
247247 218commonwealth: (i) from the tax surcharge on such tax pursuant to section 3; (ii) from public and
248248 219private sources as gifts, grants and donations to further local or regional transportation projects;
249249 220and (iii) all other monies credited to or transferred from any other fund or source pursuant to law.
250250 221 (b) The state treasurer shall deposit revenues received by any such tax surcharge into the
251251 222fund in accordance with section 9 in such manner as will secure the highest interest rate available
252252 223consistent with the safety of the fund and with the requirement that all amounts on deposit be
253253 224available for withdrawal without penalty for such withdrawal at any time. All interest accrued
254254 225and earnings shall be deposited into the fund. The fund shall be administered in a manner to
255255 226separately account for revenues raised by each city, town, or district, shall be held for the benefit
256256 227of such city, town, or district, and expenditures from the fund shall be made solely for the
257257 228administration and implementation of this chapter. Any unexpended balances shall be
258258 229redeposited for future use by the city, town, or district consistent with this chapter. 12 of 13
259259 230 (c) The state treasurer shall make all disbursements and expenditures from the fund
260260 231without further appropriation, as directed by the commissioner of revenue in accordance with
261261 232section 9. The department of revenue shall report by source all amounts credited to said fund and
262262 233all expenditures from said fund. The commissioner of revenue shall assign personnel of the
263263 234department as it may need to administer and manage the fund disbursements and any expense
264264 235incurred by the department shall be deemed an operating and administrative expense of the
265265 236program. The operating and administrative expenses shall not exceed 5 per cent of the annual
266266 237total revenue deposited into the fund.
267267 238 Section 9. (a) All sums received by the commissioner under this chapter shall, not less
268268 239than quarterly, be distributed, credited and paid by the state treasurer upon certification of the
269269 240commissioner to each city or town or the municipality treasurer or regional planning agency of
270270 241the district and notified the commissioner of their acceptance.
271271 242 (b) The state treasurer, upon certification of the commissioner, shall distribute the funds
272272 243to the city or town, or the municipality treasurer or regional planning agency of the district based
273273 244on the proportional amount the city, town or district has raised by imposing the surcharge. The
274274 245total distribution of funds shall include all sources of revenue raised in the previous year as set
275275 246forth in subsection (a) of section 8, less not more than 5 per cent of the annual total revenue of
276276 247the fund, as set forth in subsection (c) of section 8. Any city, town or district seeking to dispute
277277 248the commissioner's calculation of its distribution under this subsection shall notify the
278278 249commissioner, in writing, not later than 1 year from the date the tax was distributed by the
279279 250commissioner to the city, town or district. 13 of 13
280280 251 (c) The commissioner shall be prohibited from diverting revenues derived from the tax
281281 252surcharge into any other fund created by law.
282282 253 (d) Notwithstanding any provision to the contrary, the commissioner may make available
283283 254to cities, towns and districts any information necessary for administration of the tax surcharge
284284 255imposed by this chapter including, but not limited to, a report of the amount of the surcharge on
285285 256tax collected in the aggregate by each city, town or district under this chapter in the preceding
286286 257fiscal year, and the identification of each individual vendor collecting the surcharge on sales tax
287287 258collected under this chapter.
288288 259 Section 10. (a) At any time after imposition of the tax surcharge, the governing body of
289289 260each city or town may approve and the voters may accept an amendment to the amount and
290290 261computation of the tax surcharge in the same manner and subject to the same requirements set
291291 262forth in this chapter.
292292 263 (b) At any time after imposition of the tax surcharge, a district under section 4, with the
293293 264approval of the majority of voters in the district may accept an amendment to the amount and
294294 265computation of the tax surcharge in the same manner and subject to the same requirements set
295295 266forth in this chapter so that the surcharge becomes uniform in all municipalities of the district.
296296 267 Section 11. The commissioner of revenue shall promulgate rules and regulations to
297297 268implement this chapter.
298298 269 SECTION 2. The regulations required by section 11 of chapter 64O of the General Laws
299299 270shall be promulgated not later than 1 year after the effective date of this act.