Middletown officials hear revised Penrose plan to add 72 affordable units at Green End Avenue and Oliphant Lane; no vote taken

MIDDLETOWN, R.I. — The Town of Middletown heard a presentation March 3 from developer Penrose and its design partners on a revised plan to create about 72 affordable housing units across two town-owned sites at Green End Avenue (the Berkeley Peckham property) and Oliphant Lane. Council members and staff said the change — adding a third story on portions of the plan — is intended to improve the application’s competitiveness for Rhode Island Housing tax credits; the council did not take a vote on the proposal at the meeting.

The plan presented by Penrose would combine a senior-oriented building at the Green End site with mixed-income family housing at Oliphant Lane, for roughly 72 total units. Carmen Chung, head of Penrose’s New England regional office, said the firm revised the design to increase density because Rhode Island Housing scores applications based in part on cost per unit and density; this year there were 15 competitive 9% tax-credit applications and only a few awards available. “We saw the town’s commitment,” Chung said, and Penrose revised the design to maximize points under the state scoring rules.

Why it matters: The town has identified affordable housing as a priority but must secure low-income housing tax credits and other financing to build. Presenters said the change to a three‑story form is driven by state scoring and financing realities; neighbors said the size and siting would alter neighborhood character, increase traffic and strain parking and sidewalks near the senior center and the ball field.

Background and timeline

Town staff and the consultant Frank Spinella recounted a multi‑year process that began in 2017. The council created an Affordable Housing Exploratory Committee in 2018, issued an RFP, then hired a consultant. Penrose was selected as the development partner in January 2024 and submitted a consolidated application that was turned down by Rhode Island Housing in May 2024 because, presenters said, the earlier two‑story design did not provide sufficient density. The town and Penrose revised the plans in early 2025 to increase unit counts and add amenity spaces and energy‑efficiency measures so the application would score better for tax credits; the Affordable Housing Committee gave a unanimous positive recommendation on Feb. 19, 2025, and the committee’s recommendation was delivered to the council before this meeting.

Project design and affordability

Penrose and its design team (Horstley Whitten/Wesley Whitten Group and Union Studio Architecture and Community Design) showed updated site plans and renderings. The team described the proposed affordability mix in general terms: at least 20% of units at 30% of area median income (AMI), most units at or below 60% AMI, and an additional tier at 80% AMI, with the overall average below 60% AMI. The team said the current concept yields roughly 72 units across the two sites and would include amenity spaces (lounges, package/mail rooms, fitness space) and sustainable design elements required for points in…