Master Plan
2008
Town of Townsend, Massachusetts
Middlesex County
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Table of Contents
Introduction………………………………………………………………………………………… 3
Mission Statement…………………………………………………………………….. 3
Community Values for Our Future………………………………………………. 3
Goals………………………………………………………………………………………………….. 3
Town Character Preservation……………………………………………………… 3
Economic Strategies…………………………………………………………………… 4
Natural Resources………………………………………………………………………. 4
Housing…………………………………………………………………………………….. 4
Agriculture………………………………………………………………………………… 4
Implementation…………………………………………………………………………. 4
History of Townsend…………………………………………………………………………….. 4
Government………………………………………………………………………………………… 7
Land Use…………………………………………………………………………………………….. 8
Zoning……………………………………………………………………………………… 8
Design Review Guidelines…………………………………………………………… 8
Commercial……………………………………………………………………………….. 8
Open Space………………………………………………………………………………. 9
Water Supply……………………………………………………………………………. 14
Natural Resources……………………………………………………………………………….. 15
Existing Natural Water Resources: Rivers, Brooks & Ponds…………… 15
Natural Water Resource Goals……………………………………………………. 16
Rare & Priority Habitats……………………………………………………………… 16
Rare & Priority Habitats Goals…………………………………………………….. 17
Infrastructure & Facilities………………………………………………………………………. 18
Infrastructure Goals…………………………………………………………………… 18
Information Technology…………………………………………………………….. 19
Utilities…………………………………………………………………………………….. 19
Education……………………………………………………………………………………………. 20
Recycling…………………………………………………………………………………………….. 21
Economic Development………………………………………………………………………… 22
Business Development……………………………………………………………….. 22
Residential Tax Revenue Development…………………………………………..23
Economic Development by Cost Reduction…………………………………… 23
Strategies for Economic Development…………………………………………. 23
Historical & Cultural Development………………………………………………. 24
Housing………………………………………………………………………………………………. 25
Transportation……………………………………………………………………………………… 26
Transportation Goals………………………………………………………………….. 27
Mass Highway Department: Townsend Projects…………………………… 28
Conclusion…………………………………………………………………………………………… 28
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Introduction
Mission Statement
The Master Plan Committee is responsible for developing a comprehensive 5 year plan for the
Town of Townsend. The Master Plan is designed to provide the basis for guidance,
coordination and accountability to future decision makers regarding the long-term physical
development of the community. The Master Plan Committee in conjunction with the Planning
Board, with the input of other Boards and Commissions, and in accordance with state
guidelines, has established goals and policies for land use, housing, economic development,
natural and cultural resources, open space and recreation, town infrastructure and facilities,
transportation, as well as an implementation plan to achieve the objectives of each element.
Community Values for Our Future
Citizens will actively participate in Townsend’s overall civic operation. The town will provide
public events and celebrations that give value to tradition and will instill a strong sense of
community. The center will serve as the heart of the community, offering accessibility to
governmental, cultural, and social resources. Townsend will be a diversified community that
welcomes citizens of all ages, origins, and financial means.
The town will employ highly motivated personnel that will put the best interests of citizens and
the community above all else. The volunteer boards and committees will work together to
provide timely resolution to public matters while considering the ideals of our community as a
whole. A caring, well-educated staff, along with parents will actively contribute to the school
system to ensure that the children are provided a nurturing environment as well as a high
quality education. The town will look for innovative and creative ways to establish additional
capital and cash flow so that the financial efficiency of the town’s infrastructure is not primarily
relying upon personal property tax.
Townsend will support existing agricultural establishments and work to preserve the landscape
of woodlands, fields, and other natural resources. Townsend will have clean air and a sufficient
supply of clean water. Townsend will be a successful town where business and community
thrive.
Goals
Town Character Preservation
•
•
Maintain a balance of mixed uses; agricultural, forest and open space land; and small
neighborhoods, and commercial development
Maintain rural characteristics of the town by maintaining a balance of residential,
commercial, municipal and institutional uses within the center
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•
•
Preserve historic structures
Provide additional recreation opportunities
Economic Strategies
•
•
•
Expand the sources of town revenue
Develop marketing strategies and implementation tactics that will appeal to the
integration of additional businesses to enhance the community
Provide a balanced budget that is consistent with revenue and funds needed for
appropriate delivery of services
Natural Resources
•
•
•
Protect groundwater, recharge areas, and wetlands in an effort to ensure safe and
ample water supply
Identify and protect wildlife habitats and other natural assets
Preserve air and water quality, monitor and control noise, light, and other environmental
pollution
Housing
•
•
•
•
Increase moderate housing options for all citizens and potential citizens per state
mandates
Maintain rural nature of the town
Encourage mixed use development
Market and promote the town to potential businesses and residents
Agriculture
•
•
Increase the options for financial sustainability of existing agricultural enterprises
Identify and monitor the inventory of Chapter 61 land so at a later date the Town can
be prepared to take actions, if appropriate.
Implementation
•
Integrate the Master Plan into the entire operation of the town; municipal boards,
committees, departments, and offices, and Town meeting
History of Townsend
Originally part of an area called Wistequassuck by the Native Americans, the land which
eventually became Townsend, Massachusetts was first surveyed by Jonathan Danforth in 1676.
The land had been granted to Major William Hawthorn of Salem as a political thank-you gift.
Although the major never saw the land, it was known as “Hawthorn’s Grant” for many years.
By 1719, the House of Representatives decided to divide an area called Turkey Hill, of which
Hawthorn’s Grant was a part, into North Town (Townsend) and South Town (Lunenburg). The
first meetinghouse to serve the 200 settlers of North Town was built in 1730 on Meetinghouse
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Hill, and on June 29, 1732 the town was incorporated as Townshend. It was named after
Charles Townshend, the second Viscount of Raynham, and a former British Secretary of State
(the viscount was also known as Turnip Townshend for introducing England to the large-scale
cultivation of said vegetable).
In 1733, a dam was built on the Squannacook at the place now known as Townsend Harbor
(harbor referring to a place of refuge, comfort or security), and a gristmill and sawmill were
erected along the river. This part of Townsend was the first to be settled even prior to the
incorporation of the town, and a tavern built by the Conant family around 1720, known as the
Old Mansion, still exists today. Throughout the 18th and early 19th centuries, Townsend Harbor
was the industrial heart of the town.
Through the 18th century, the boundaries of the town changed. A triangle of land in the
northeastern part of town was lost to Dunstable. In 1741, a third of the town was lost when
the border between Massachusetts and New Hampshire was moved south. The final change
occurred around 1767 when the western boundary was moved to the east to make way for the
town of Ashby.
That same year, the Townshend Acts, proposed by Charles Townshend’s grandson, were
passed by England’s Parliament. These acts placed a tax on common items imported by the
colonies, and further infuriated the colonists, who were already suffering under the Stamp Acts
of 1765. Eventually, most of the Townshend Acts were repealed, but the seed for revolution
had been planted. Townshend sent 73 soldiers toward Concord on April 19, 1775, nearly 10%
of the population of 821 (1776 census). As the war progressed and patriotism took root, the
“h” began to drop out of the spelling of the town’s name in the written record, and soon
Townsend was the accepted spelling.
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After the war, growth in the town began to shift to the west. Because of the earlier boundary
changes, the geographic center of the town had moved, and so the second meetinghouse, built
in 1771, was moved in 1804 to Townsend Center. The first floor of the building was used as
the town hall until the 1890’s, when Memorial Hall was built to commemorate those residents
who fought in the Civil War.
As the 19th century progressed, most commercial and manufacturing interests moved closer to
the center of town as well. These interests included the production of stockings, clothing, pails
and tubs. But the major industry in town was the production of coopering stock. The B. and
A.D. Fessenden Company became the largest employer in the town, running lumberyards and
sawmills in addition to the cooperage factory. The company finally closed in 1960 after many
productive years.
The development of West Townsend, the third village in the town, was linked to the turnpike
which passed through the area on its way to western Massachusetts and New Hampshire.
Several taverns were built, and by 1806, the Joslinville Tavern on Main Street was a main stop
on the Boston to Keene Stagecoach. In the 1830’s, the West Village Female Seminary was
built, which helped West Townsend become the cultural center of the town.
The railroad came to Townsend in 1846 and had a unifying effect on the town. Many of the
goods manufactured in town were now shipped via the railroad, which further enhanced the
development of these industries. By 1900, three trains ran in and out of town each day.
With a quick mode of transportation now available, farms were able to increase their
production. Cranberries were raised in a bog off Spaulding Street, the Harbor Farm on Main
Street produced milk, apples and produce, and several poultry farms became major suppliers to
the New England egg market. Many of these businesses lasted well into the 20th century.
The booming manufacturing and agriculture industries created other needs. By 1871, the town
district schools made way for its first high school located near the center, which also housed
primary and intermediate grades. The first bank was chartered in 1854, and the fire
department was established in 1875. The first police department came fifty years later in 1926.
As was true all across New England, by the middle of the 20th century many of the
manufacturing and agricultural businesses began to slow. The train ran only three times a
week. The Fessenden Company closed in 1960. The poultry industry waned until only one
farm remained in operation in the 1970’s. The last Boston and Maine train left Townsend in
1981.
By the end of the century, Sterilite was the largest industry remaining in town.
With the decrease in industry, Townsend has become a residential community with
many of the requisite service providers while retaining much of its rural character. The
town adopted its governing charter in 1999, and Memorial Hall was beautifully restored
ten years later. In 2007, Townsend celebrated its 275th anniversary with many
activities, culminating with a grand parade in September of that year.
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Government
A town charter, adopted in May of 1999, governs Townsend, but is due for a periodic review.
Currently Townsend has 17 Elected Boards/Committees and 66 Appointed Committees. The
legislative powers of the town are vested in a town meeting open to all voters. In the 2001
Master Plan, five policies were recommended to the town:
1. Establish accountability of department, boards and commissions
2. Improve citizen awareness
3. Evaluate the cost-effectiveness of all town facilities and services, exploring alternatives
where appropriate
4. Promote regionalism and cooperation with neighboring towns in both Massachusetts and
New Hampshire
5. Establish the active role of the Strategic Planning Committee combining Capital Planning
and Master Plan monitoring and implementation
As a town some steps have been made, but there is lots of work to go in order to make these
policies an integrated function of the town. The residents should be applauded for all the
volunteer hours that are given to the town however, their efforts would be more effective with
stronger leadership.
After discussions with numerous committee representatives, department heads and town
personnel, it is the opinion of the Master Plan Committee that the department heads do not
possess enough control over their own departments. We believe the limiting factor to be the
Town Charter and the best solution would be to change the Charter. The town has hired these
heads to run the departments and they should have the authority to do so. Obviously reporting
needs to be maintained and a “chain of command” needs to be intact. Our suggestion is the
department heads report to the town administrator who in turn reports to the Board of
Selectmen. Other towns locally have adopted this process with success.
The town also lacks some positions that need to be considered. At first some would claim that
new positions will cost the town money, but we believe they will save the town money and help
raise revenue.
First, a grant writer to support all town departments should be a top priority. This position
could be hired as a staff position for the town or subcontracted to a firm providing these
services. Currently each department head tries to write their own responses to grants and tries
to keep up with all that are available for their department. Though we commend them for the
job they do, the town would be better suited to contract a professional to handle the task. This
would allow the department heads to stay focused on their jobs. If the town contracts with a
firm to complete the job, the firm can also write into the grant process their fee for the service.
Therefore reducing or eliminating the town’s “out of pocket” expense.
Second, a human resources position needs serious consideration. Although department heads
do need authority over their respective personnel, some issues need a third party for resolution.
In addition the HR person could help each department head in terms of benefits administration,
again to the common theme of allowing them to do their jobs instead of these duties.
In summary, we have a great crew but our ship needs a strong captain.
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Land Use
A Master Plan’s most significant function is to provide a land use blueprint for the future of the
community. Zoning is intended to manage conflict by balancing private property rights with the
interests of the community at large. Townsend is unique in which there is an abundance of
designated Open Space areas. A great majority of the town serves as a habitat to a number of
endangered wildlife and plant species that thrive both in and out of allocated areas of regulated
Open Space. Townsend is faced with the challenge of enhancing financial and social well being
while remaining prudent to the delicate ecological system and natural resources that prospers
within the community.
Zoning
Zoning classifications within Townsend are 97% residential. Most residents agree that it is
important to maintain a rural characteristic for the town. However, the purchase of open space
is costly and removes land from the taxable base, which reduces tax revenue. It is essential for
the town to investigate and implement alternate land use possibilities as a means of viable
revenue, such as industrial parks and for-profit recreational options. Proper use and
management of municipally owned property, along with updating zoning classifications, have
the ability to generate new funds that will decrease the financial liability for households and
thus will work to enhance the overall quality of life.
Residential zoning isn’t limited to residences. There are churches, public buildings, orchards,
etc., and under some circumstances, a special permit can be obtained to operate certain
businesses, such as daycares, kennels, funeral homes, etc., within both residential districts.
The allowed uses in residential zones are flexible but some permitted uses may not always be
advantageous to abutters living in a certain neighborhoods. Citizens that live in more densely
populated areas should have a different set of criteria than those that live in more rural parts of
town. The establishment of clearly defined zoning parameters that are suited to specific clusters
and areas would be more beneficial to the maintenance, growth, and progress of the town.
Design Review Guidelines
It is difficult to preserve a rural, New England character when there isn’t any written
information relating to aesthetic criteria. Architectural characteristics define a town; the
creation of Design Review Guidelines would help Townsend and Developers uphold and
enhance the town’s New England charm. As part of the permitting process for all non-single
family dwellings, new development and redevelopment projects should be subject to guidelines
that address the town’s architectural preferences; building materials, roof lines, windows,
facades, etc. It is also suggested that landscape and signage guidelines be implemented as
well. The implementation of said guidelines is intended to complement the existing Site Plan
review process.
Commercial
Little has been done to foster and retain commercial business. Open Space development is only
viewed as an asset rather than a potential financial liability to the town.
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There has been a noticeable decline in retail and business services available in Townsend and
there are a number of commercial buildings sitting empty. Townsend is now in a position to
take advantage of employment opportunities being generated by the new Bristol Myers Squibb
Building and the pending construction of a state of the art hospital in Ayer. Both locations
make Townsend an ideal community for new residents, and while residential development is not
as cost effective as commercial/industrial, it is virtually impossible to have one without the
other. The more citizens the town is able to retain and attract, the more potential there is to
maintain and build upon commercial establishments. The town should consider starting a
marketing campaign to target potential residents and commercial/industrial development.
Open Space
Open Space is looked at as an asset to a community. Townsend is blessed with a large amount
of state and municipally-owned property. Conventional Subdivisions have taken a back seat to
the trend of Open Space Preservation Development (OSPD), which is a site planning technique
that clusters homes to reduce lot size and create a larger parcel of land that is deeded to the
town for conservation/light recreation purposes. OSPD typically reduces the amount of
impervious area by 10-50% and site grading by 35-60% and in turn reduces the amount of
drainage infrastructure needed. When planned properly, OSPD is an environmentally friendly
approach to development. We recognize the environmental benefit of less development.
However, we are concerned about grouping houses in smaller lots and leaving unusable land as
open space. As a rural town, we want to maintain lot sizes that keep houses spread apart. We
also want to ensure that the larger parcel of land that is left open is not wet, swampy or
otherwise unbuildable land. We do not think OSPD’s should allow developers to build on land
that because of the wetlands would not hold the same number of individual lots as a clustered
development would. We also believe the land should be deeded to a homeowners association
so it remains in the tax pool. It does need to be identified as unbuildable, as it is tied to the
development however, we do not want the town to own it resulting in reduced taxes.
Municipal acquisition of property does not generate tax revenue however, there is great value in
the success of the town’s delicate ecological system; therefore, if the Planning Board deems an
OSPD or clustered development necessary, the land should be deeded to the homeowners
association and identified as open space that cannot be developed. The town should look
towards adopting more beneficial uses of Open Space that might strengthen the ecological
system (planting native vegetation, etc.), give additional value to the community (playground,
splash pad, skate park, etc.), or relieve the municipality of the burden of ownership
(homeowner’s association agreement, deed restriction, easement, etc.)
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We need to
provide
documentation
that shows “ in
perpetuity” or
remove this
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Townsend is a rural town which values open space. Residents have voiced their support for
preservation and enhancement of open space and the rural character of the town. One of the
reasons for this support is to protect our abundant, yet very precious and fragile, water
resources. Another is to maintain rural quality and provide outdoor recreational opportunities.
The community perceives a threat to the town’s rural nature and qualities due to residential
sprawl. Land use impacts from septic systems, lawn fertilizer, and storm water runoff directly
affect the surface water resources and lead to deterioration of water quality. As such, the town
has established several resource protection goals for land use.
•
•
•
Encourage balanced land use consistent with New England character through periodic
zoning and development review that is sensitive to wildlife corridors, cyclical review of
zoning districts to ensure land use suitability, and preservation of agricultural resources.
Promote business development in a manner consistent with protecting water supplies
and preserving town character.
Protect water supply and infrastructure through careful and comprehensive land use
planning, by strengthening protections for wellheads and the Aquifer Protection Overlay
District.
Promote open space housing that is consistent with Townsend’s rural character,
compact villages, and open space preservation goals.
Townsend residents openly support the preservation and enhancement of open space and the
rural character of the town. The open space serves to protect water resources, and the forests
and meadows support both the wildlife of the region and outdoor recreational opportunities.
Four open space goals focus upon water resource protection, financing strategies for protecting
open space, strategies for preserving the rural character through open space protection, and
strategies for promoting recreational and educational opportunities associated with protected
open space.
The natural resources of Townsend include its aquifer, the wetland and floodplain areas, and
woodland and meadow habitats. The Master Plan includes a goal to preserve, protect and
enhance these resources through strategies to improve water quality of the Squannacook River
and other surface water bodies, and to encourage resident participation in biodiversity
programs. The policies of this goal reiterate the protection proposals of the open space and
water resources goals, and include recommendations to publish a detailed natural resources
inventory, and to attain Tree City designation.
Recreation resources include a program for organized sports for the youth of Townsend, a
summer recreation program for school-aged children and an ice skating rink in the winter.
Goals for enhancing recreational opportunities include:
•
•
•
•
The development of a recreational inventory
A tourist map of recreational areas and natural resources, and state supported
improvements to the trail system with linkages
Sighting and design of recreation areas for several forms of recreation including
skateboarding, hunting, biking, picnicking, cross-country skiing, snowmobiling,
horsemanship activities
Establish a youth center
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•
•
Develop a rail right of way as a recreational trail
These goals would all be accomplished with an eye toward protecting water quality
Water Supply
The Townsend Water Department currently services approximately 5,200 residents from three
ground water sources located in town. One is a well field consisting of 52, 2 ½” tubular wells
located on Main Street in West Townsend PWSID #: 01G. Another source is a gravel-packed
well located off Cross Street near the center of town PWSID#: 02G. The third source is the
newly constructed Harbor Trace Well located off South Street. In July 2007, the Water
Department also purchased the Witch’s Brook Water Company, which services about 500
residents (homes?) in Timberlee Park. The purchase of Witch’s Brook Water Company adds
two gravel-packed wells off Ash Street to the Water Department. There are two storage tanks
in town; one is a half million-gallon tank on Fitchburg Road and the other is a one million-gallon
tank on Highland Street.
The Board of Water Commissioners hired Earth Tech, Inc. of Concord, Massachusetts to
perform a comprehensive analysis of the public water system and make recommendations for
the future development of the Townsend public water system over the next 20 years. Earth
Tech, Inc. issued their report to the Board of Water Commissioners in September of 2003. The
report concluded the town had sufficient storage capacity but needed to make improvements to
the supply and distribution system.
In the four years since the report was issued the Water Department has done an excellent job
implementing the recommendations of the study. The Harbor Trace Well project, the
replacement of 2,000 feet of water main on South Street and Warren Road, and the purchase
of Witch’s Brook Water Company have all been great strides forward for Townsend. By
continuing to follow the recommendation of the 2003 report the Water Department will be able
to continue providing the town with a safe and reliable source of water.
While working to ensure we have a well operating supply system we also need to work even
harder on protecting the ground water sources that supply those wells. Townsend has adopted
a Ground Water Protection District By-Law in order to prohibit, restrict and control land use and
development in the protective radius around Townsend’s wells. Protection of our aquifers will
take a coordinated effort between all of the town boards and committees, not only for existing
sites but we must work to protect future well sites and aquifer recharge areas from potential
impact. By responsibly using household chemicals and lawn fertilizers, town residents play a
major role in the future of their water supply. Better public education about the dangers of
groundwater contamination and making the safe disposal of old household chemicals easier, are
two easy steps we can take to protect our ground water for future generations.
As a town we must look beyond our borders to protect our groundwater. Future planning and
monitoring programs must be done in conjunction with surrounding towns, state and federal
agencies. By sharing resources and information with other stakeholders that rely on the same
drinking water sources as Townsend, we can develop a truly comprehensive plan that will
protect everyone’s interests.
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Natural
Resources
Townsend has a profuse amount of natural features that include rivers, ponds, wetlands and
swamps, which help, replenish aquifers and contribute to the town’s water supply. The town
also boasts natural beauty with lush plant life, riparian zones, and forests. Townsend has
several designated natural resource areas in which the public can engage in passive recreational
activities like hiking, biking, fishing, swimming, etc. The Townsend State Forest, Willard Brook
State Forest, Pearl Hill Reservation and Old Meeting House Park provide opportunities for
outdoor exercise and visual enjoyment of nature, as well as superb habitats for the area’s
wildlife population.
Existing Natural Water Resources: Rivers, Brooks and Ponds
Townsend is fortunate to have several significant surface resources within the community. The
Squannacook River watershed, located within an Area of Critical Environmental Concern (ACEC),
is known for its diverse wildlife habitat, riverine ecosystem, passive recreation and aesthetic
views. The Squannassit ACEC* is located within and in the surround of the Squannacook River.
The Harbor Pond is a sub-basin formed from the Squannacook River. Bayberry Hill, Bixby,
Mason, Pumpkin, Walker, and Witch’s Brooks are all tributaries which run into the Squannacook
River. Other water resources include Vinton Pond, Bixby Reservoir and Pearl Hill Pond.
*Squannassit ACEC in Townsend consists of 15,050 acres, which makes up 40% of the total
Squannassit ACEC.
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Natural Water Resource Goals:
Remediate Harbor Pond through forming a pond association which can evaluate the biological
health of the Pond and develop a plan of action. The pond has become excessively vegetated
with noxious aquatic plants and invasive weeds. High levels of phosphate and weeds have
lead to eutrophication of the pond, which can lead to the destruction of wildlife habitats,
negatively affect fishing, swimming, and other recreational activities. These detrimental
attributes can also displace Threatened and Endangered Species.
There are other goals which should be considered, not just with Harbor Pond, but the other
water resources and watersheds in town. Of major concern is to develop means to protect the
pristine streams and brooks that provide breeding grounds and habitat for native Eastern Brook
Trout (Bayberry Hill, Bixby, Mason, Pumpkin, Walker, and Witch’s Brooks). Flat Pond Brook
has been filling in with sediment, which has led to the disappearance of the Eastern Brook
Trout. Focus should be on what can be done to help restore the Eastern Brook trout
population.
Also, an investigation of means needs to be conducted to identify non-point source pollution
areas which are contaminating our water resources. Non-point pollutants are pollutants
detected in a concentrated water source such as a stream, river or lake that come from a wide
range of sources. Common types of non-point pollutants are sediment (water erosion of soils),
nutrients (fertilizer, animal wastes), pesticides (herbicides, insecticides, fungicides, etc.), salt
(mostly from applied road salt) and toxic materials (manufactured and refined products like oil,
paints, anti-freeze). Sources of non-point pollutants come from roads, parking lots, lawns, and
septic systems.
Once nonpoint pollutants are identified, action plans should include ways to try and implement
a Total Maximum Daily Load (TMDL) Action Plan. The Clean Water Act, section 303 has TMDL
programs. Efforts should be made to maintain excellent water quality and quantity of public
water supplies by protecting the watersheds. Watersheds are land areas that collect rainwater
or snowmelt and then drain that water to a common outlet.
Rare and Priority Habitats
Vernal pools are unique wildlife habitats that are free of fish and provide important breeding
habitats for many terrestrial or semi aquatic species such as frogs, salamanders, and turtles.
Vernal pools typically fill with water in the fall or winter due to rising ground water and rainfall
and remain ponded through the spring and into early summer. Vernal pools dry out completely
in the later summer months each year. Townsend has 13 vernal pools certified by the Natural
Heritage & Endangered Species Program (NHESP). The NHESP also has a list of potential
vernal pools. The list was based on aerial photographs. Aerial photographs have a margin of
error based on forest cover, topography and photograph quality.
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Priority habitats are based on the known geographical extent of habitat for all state-listed rare
species, both plants and animals, and are codified under MESA. Habitat alteration within
Priority Habitats may result in a take of a state-listed species, and is subject to regulatory
review by the Natural Heritage & Endangered Species Program. The areas are meant for land
use planning purposes and, being so, are not subject to state law protection.
Rare and Priority Habitats Goals
Research all potential vernal pools listed by the NHESP. It is important that the potential vernal
pool areas which are known to produce vernal pools be certified. If the vernal pools aren’t
certified then they have no protection from being developed. Establish a balance between
wildlife habitats, & natural resources while allowing passive & active recreation within these
areas.
The establishment of environmental associations, and program groups is critical to protecting
Townsend’s natural resources. The town’s people will play a critical roll in the protection of
Townsend’s natural resources. Once associations are formed, they will be able to educate
residents on the concerns and goals of each organization. There are some established
associations that own responsibility for this now. We need to identify who does what and
coordinate efforts under one group.
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Infrastructure and Facilities
Infrastructure and facilities are at the heart of community life. Our town’s roads and sidewalks
must not only meet our circulation needs but must give us a level of safety and reassurance.
More sidewalks are need in town. Our police and fire fighting services, schools, library, senior
center, community services center and other municipal buildings are all part of what keeps our
community together.
The recent gift from Sterilite provides much needed infrastructure. The new Library, Senior
Center and Public Works building allow Townsend to focus on other areas of infrastructure.
Some areas of concern are continuing to fund public schools at the appropriate levels and
supporting Fire, Police and Emergency services. We need to leverage the new Public Works
building to maximize its usefulness across all departments.
Another critical component of sound planning is to understand town assets. There has been an
inventory of town land and buildings. There was also a recommendation to sell some of this
land to generate revenue. Due to title and other issues this land has not been sold. We need
to review this program, resolve the title and other issues and sell the land that will benefit the
town and generate revenue. Potentially there is land that could be utilized for industrial
expansion to increase the tax base. There could also be buildings that could be used for other
purposes that would benefit the town.
Infrastructure Goals
Studies estimate that the general population of Townsend and the Student population will
remain relatively flat over the next five years (see data below). With this in mind the five-year
goals should be to solidify our current infrastructure and expand for planned growth.
2000 population – 9198 (from 2000 Census)
2006 population – 9327 (estimated by MA Dept of Rev)
2010 population – 9507 (UMASS Donahue Institute)
2020 population – 10123 (UMASS Donahue Institute)
See Massachusetts Student Population in chart below
Source: UMASS Donahue Institute Mass Benchmarks Web Site Quarterly Report
( http://www.massbenchmarks.org/statedata/data.htm )
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There are major infrastructure improvements pending. Sterilite’s donation of a new Library,
Senior Center and Public Works building will greatly improve the infrastructure of the town.
The successful completion of these should be a priority in the next few years. We must also
look at ways to maximize these resources. One example is to leverage the new public works
building to support the town fleet of vehicles. This would require a partnership and/or
consolidation of departments to successfully accomplish.
Information Technology
Information Technology is an area the town needs to improve. The limited use of technology
was consistent across all departments we interviewed. In this “digital” age that we live in,
internet access is a requirement for any organization. We should leverage our local cable
contracts to provide internet access to all public buildings in town. A dedicated IT/MIS person
or contracted firm should also be considered to implement technology that will reduce the costs
of the services the town offers. Continued expansion of the town web site to offer additional
services and increase the sense of community should also be considered. Things like forums
and blogs to discuss town issues and to ask questions could stimulate public discussions and
increase the involvement of the community. Also increasing the information provided on the
web site will establish a trend and increase usage of the web site. However, we must also
remember the segment of the population that does not use the internet and identify ways to
communicate with them also. Newsletters in the town office that are created from the web
content would be an effective way to communicate to all.
Utilities
Utilities are a vital part of our infrastructure. In recent years the cost of utilities has
dramatically increased. Unitil is the current provider of gas and electricity to Townsend. We
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need to leverage competition to ensure we are providing the most cost effective options to the
town. We should also look into using the natural resources we have in the town to provide
alternative power sources. We can look at our open space to leverage wind power; we can also
look at the Squannacook River as a source of hydroelectric power. Alternative power sources
will be required in the future and we should start researching these options now. The
Montachusett Regional Planning Commission has similar goals for alternative power, the town
should designate someone to contact this organization and leverage help to improve our town’s
resources.
The use of a grant writing firm and/or dedicated grant writing town employee has been
mentioned in this plan. There are numerous grants and funds to expand and improve the
infrastructure in our town. Considering the ideas in this section and using grants to reduce the
cost to Townsend is critical to improving our infrastructure without dramatically increasing our
costs.
Education
Education is the single largest expense to Townsend. Recent overrides highlight the issues we
have in funding our schools. However, improvements to the current process are required. Open
dialogue between the regional school committee and the town (Finance Committee, Selectmen,
etc.) is required moving forward. All departments must work together to solve problems. We
cannot afford to have departments, committees and boards working independently. A group
approach to problems is the best way to solve them. State of Massachusetts Chapter 70
funding must also be maximized. There is room to expand this funding to the town.
A
designated grant person or grant writing firm, as previously identified in this plan, should be
leveraged to increase Townsend’s share of Chapter 70 funding.
2008 Chapter 70 funding in North Middlesex School District
LEA
Member
City/Town
12
232
299
999
ASHBY
PEPPERELL
TOWNSEND
DISTRICT TOTAL
FY08
FY08
FY08
Net School
Per Child
Foundation
FY08
Net
Minimum
Foundation
Chapter 70
Spending
Local
Enrollment
Budget
Contribution
Aid
Requirement
Contribution
561
2,109
1,708
4,378
4,412,462
16,577,590
13,422,525
34,412,577
2,078,385
7,143,048
6,431,741
15,653,174
3,704.79
3,386.94
3,765.66
20,148,846
35,802,020
Source: Mass Educational Department Web Site – Chapter 70
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Recycling
Trash removal and recycling in Townsend is a premium service. There is a recycling program and
there are loosely enforced restrictions on the amount of trash left weekly. Many towns have
implemented a Pay As You Throw (PAYT) program. This has resulted in a reduction of trash and an
increase in recycling. This could reduce the cost of trash removal to the town and return much
needed money. Below is a chart comparing towns with and without a PAYT program.
Another option to assist in the reduction of trash and to increase recycling is a town swap program.
This program could be managed by volunteers. A building to store the items would be required.
Possibly there is a little used town building that we could leverage. This service would allow people in
the town to bring items they no longer want to a public building for others to swap. This can provide
items to families in need and reduce waste that we must pay to have removed.
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Economic Development
Business Development
Townsend relies heavily on Personal Property and Real Estate Taxes as sources of revenue for the
General Fund. This reliance is not disproportionate to the overall demographics of the town however,
there are just over 100 Commercial and Industrial tax accounts in town, compared with over 3,000
Residential type tax accounts. The valuation comparison is similar: 91% of the total property value is
residential while 7% is commercial/residential.
Many residents are of the opinion that increased business in Townsend will significantly lower
residential tax bills. The theory is that businesses generate tax income to the town that far outweighs
the related expenditures. Therefore, there is a net gain to the general fund. While essentially true, the
overall impact to the average residential tax bill is minimal (assuming residential real estate valuations
do not rise or fall due to the increased commercial and industrial businesses). If the commercial /
industrial tax base in Townsend were to double, the increase in gross revenue would be approximately
$800,000. The resulting reduction of the average residential tax bill would be $250, (7%). Although
these numbers are attractive, the likelihood of doubling business in town, without negatively impacting
the rural character of the town and/or reducing property values is very small. This does not mean that
Townsend should avoid commercial or industrial development. From an economic standpoint, any
development, that fits in with other aspects of the Master Plan, which is revenue positive, should be
encouraged. Business growth is not a panacea for the town’s economic health.
In order to make sound decisions on residential and commercial expansion, the town needs to
understand the tax effect that additional residents and businesses will have on revenue. A study must
be commissioned to understand the revenue impact of adding residential property under multiple
zoning options and adding commercial property. As with a business, the “breakeven” point must be
identified to cover the cost of town services with the revenue it generates. When the study is
complete an infrastructure plan must be created to support the identified development required.
Funding is an issue echoed by all departments and committees. Additional revenue opportunities are
needed to meet these requirements. To address this we need to consider one of the following:
increase the number of residential homes to expand the tax base; increase the commercial business
base to expand tax revenue (through many smaller businesses or one larger business like Sterilite);
increase the tax rate; or, reduce the services provided by the town. To address the problem and have
the least effect on the town, a combination of all these approaches is required. Additional zoning
guidelines can also assist in increasing revenue. An example would be to limit land given back to the
town when developments are completed to keep the land in the revenue generating population, and
not owned by the town which eliminates revenue opportunities.
The seemingly opposite goals of maintaining Townsend’s rural character and increasing the commercial
and industrial bases of the town make attracting the right business difficult. Townsend must strive to
attract compatible revenue-positive businesses. This is not an easy task given Townsend’s location and
perceived business unfriendly reputation. Some motivated effort must be put forth to accomplish this
goal. “Target” business types should be identified and courted. These business types could include high
tech, recreation, or business services. This “marketing” of the town must be explored, implemented
and leveraged to generate significant business growth.
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Residential Tax Revenue Development
From a purely economic standpoint, residential development should be encouraged when the revenue
stream is more than likely positive. Although Townsend’s tax revenue is highly skewed toward the
residential base, the expenditures are comparably skewed toward residential. Therefore, any residential
development which has unusually high tax revenue in comparison with its true public costs will be
fiscally beneficial. Examples include age-restricted development which has no school age residents and
very high end homes, even if they have school children. The impact of development on the fiscal health
of the town should be calculated. (i.e. 1 added student does not increase costs to the school district,
however a significant increase in students may necessitate the addition of staffing and higher
incremental costs). There is a “break even” point where increased development triggers these higher
incremental costs. This data must be calculated and incorporated into the overall development
philosophy of the town.
Economic Development by Cost Reduction
All possible streams of revenue, which comply with the Master Plan, should be explored. At the same
time, all possible savings of expenditures, again complying with the Master Plan, must be explored and
implemented. Two potential immediate savings are the consolidation of the town’s infrastructure
departments into one Department of Public Works and the aggressive pursuit of Grants.
Townsend currently has separate departments for Highway, Water, and Cemetery and Parks. Most
cities and towns provide these services with one department of Public Works. The synergies achieved
through the Public Works consolidation, without loss of services, could be significant. The inefficiencies
of separate departments, redundant department heads, clerical, facilities, etc, would generate
immediate and sustainable savings to the town without any loss of service.
During the interviews of Department Heads by the Master Plan Committee, one of the repeated themes
we heard was the loss of potentially valuable grants. The federal government makes available over
$400 billion in grants every year. Townsend has benefited from the use of grants but there are missed
opportunities. Grants must be aggressively pursued and utilized. The benefit is both economic
(reduction of expenses) and public (services or projects that would not be possible otherwise)
Strategies for Economic Development
•
•
•
•
•
•
•
•
•
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Implement the recommendations of the Zoning District Change Committee to
encourage appropriate business development in the Rt. 119 and Rt. 13 corridors
Encourage appropriate business development in the Town Common area
Market the town as a viable and attractive location for business(es)
Explore professional assistance in the marketing effort
Calculate the true costs of development (residential, commercial and industrial)
Utilize the true cost data in the development strategies
Hire a grant writer (or commissioned firm) to maximize grant opportunities (must be
revenue positive)
Consolidate the Highway, Water and Cemetery and Parks Departments into a single
Public Works Department with 1 Superintendent
Explore electric utility savings through municipal methodologies. (Load aggregation,
Municipal Power and Light, etc.)
•
•
•
Shape the pattern of residential growth to be fiscally neutral or positive while following
the other objectives of the Master Plan
Explore, implement and leverage all potential synergies and consolidations in town
departments
Town leaders must aggressively pursue state funds (cherry sheet and Ch 70) to offset
town expenses
Historic and Cultural Development
The rural character of Townsend has been viewed as one of its most treasured aspects for many
years, and the desire to maintain this continues to hold very high priority for government and
townspeople alike. The town has three well-delineated historic districts which deserve protection and
preservation. Included in one of these historic districts is the town common, which is used for
quintessential New England craft fairs as well as summer concerts performed by the historic
Townsend Military Band. The donation of a new library and senior center by Sterilite will only
enhance the cultural resources available to the townspeople. These historic and cultural aspects of
Townsend add a quality to our life which could not be duplicated in the modern day, and which we
hope to maintain through the following goals.
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
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Establish a program (possibly grant-based), with the aide of the Townsend Historic
District Commission and the Townsend Historical Society, to preserve historic sites and
structures in Townsend and to maintain a sense of history for all residents and visitors
to Townsend
Inventory all historic sites and historic structures in Townsend Place and maintain, in a
uniform fashion, historic markers – including dates and facts - on all historic
monuments, buildings, statues, and other places of interest
Maintain and promote the three established historic districts of Townsend
Clarify historic district designations and the responsibilities of property owners within
these areas
Replace signage in the historic districts to be more consistent and in keeping with the
area
Create buffer zones in around the historic districts
Promote Townsend's rich manufacturing and agricultural history
Adopt an aggressive approach to enhancing the aesthetic aspects of our rural
atmosphere with the assistance of town agencies
Build sidewalks where feasible
Encourage business owners to present themselves as an integral part of Townsend
Establish a plan for commercial facade improvement to encourage better business
relations and foster a sense of community among residents and businesses
Establish Memorial Parks to honor all Veterans
Create and beautify our environment by developing town gardens and floral displays
Engender town spirit by creating neighborhood parks through community efforts
Establish a children's play area with statues and fountain, park benches, gardens
Promote lifetime learning opportunities for all residents of Townsend
Determine the lifetime learning needs and interests of Townsend residents
Utilize public buildings for meetings and encourage participation in using
educational resources
Develop cultural opportunities for all residents of Townsend
Create a tourist center as a source of information on all places of interest in
Townsend
•
•
•
Designate specific areas of town as cultural sites
Designate a central parking area to relieve traffic congestion and encourage
pedestrian travel
Promote access to the town’s historic, cultural, and educational resources
Residents value the rural qualities of Townsend. It is important to retain these special features which
make visitors and residents alike feel welcome. Working together we can retain the qualities of life
which brought us here in the first place and continue to enrich our lives.
Housing
Town of Townsend needs to increase moderate and affordable housing options per state mandates.
It is important that the current residents, the elderly and entry-level buyers are able to remain part of
the Townsend community as well as encouraging individuals and families to move into Townsend.
The Town of Townsend has a housing authority which studies the housing needs of the town and
provides programs to make available low income housing for families and the elderly. The Housing
Authority facilitates the Town of Townsend’s goal to reach an equitable number of affordable housing
units, by researching the best use of the town’s developable resources, seeking state and federal
funding where possible, and development of Local Initiative Projects which will bring affordable
rentals and ownership units to Townsend. The Housing Authority also supports the work of the
Townsend Local Project Committee in bringing new homes to town under Habitat for Humanity North
Central Massachusetts.
TOWN STATS
2006 Census: Town of Townsend population 9327
2006 Census: Total number of households = 3179
In December 2005, the Department of Housing and Community Development (DHCD) approved
Townsend’s Affordable Housing Plan which sets a challenging goal of producing 275 affordable units
over the next 15 years.
As of January 2008, the Housing Authority received a $5 million HUD grant to create 36 units of
senior housing at Atwood (groundbreaking approximately July 2009). The Housing Authority is
expecting the beginning of the approval process on a 40B of 112 units which will mean 28 affordable
homes over approximately five (5) years.
The town should continue to increase moderate and affordable housing supply, while keeping the
rural nature of the town by promoting affordable housing programs through State and Federal
funding as well as require all new developments to have affordable units. Additionally, the town
should encourage mixed use development such as retail/office first floor with apartments above and
allow two-family housing and accessory apartments in appropriately zoned areas.
As there are many vacant spaces in town, especially in Harbor Village, it would be beneficial to hire
or appoint a business development person to attract new business into town which may also attract
new residents into town.
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It is important that Townsend continue to be affordable to the residents living in town now, as well
as provide affordable options to potential residents. This can be accomplished by encouraging a
greater diversity of housing opportunities in Townsend to meet the needs of a changing and
diversified population with respect to age groups, persons in a household and income.
Transportation
The local transportation system should provide efficient and safe mobility for all transportation modes
as well as connections to regional facilities. The availability and quality of the transportation system is
important to residents, businesses, students, visitors, and emergency services. The maintenance and
enhancement of the transportation system can be used to attract development and expand the tax
base. In addition, the transportation system has impacts on resources, community character, and the
quality of life.
Townsend has 156 town roads totaling 104.49 miles of roadway. The principal highway of northern
Worcester County is State Route 2, which runs across northern Massachusetts. State Route 140 and
Interstate 190 connect the region to Worcester. The Springfield Terminal Railway line (the former
Boston and Maine Railroad) parallels Route 2 and provides access to the network of intermodal
facilities serving central and eastern Massachusetts. Principal highways are State Route 13 connecting
Fitchburg with Nashua, New Hampshire, and State Route 119. Commuter rail service to North Station,
Boston, is available in neighboring Fitchburg. Travel time: 85-94 minutes; no MBTA parking.
Townsend is a member of the Lowell Regional Transit Authority (LRTA). No fixed bus service is
provided, but paratransit services are available for the elderly and disabled through LRTA's Road
Runner program.
Traffic counts for Townsend are below:
Average Daily Traffic
CITY/TOWN
TOWNSEND
TOWNSEND
TOWNSEND
TOWNSEND
TOWNSEND
TOWNSEND
TOWNSEND
TOWNSEND
ROUTE/STREET
LOCATION
BARKER HILL RD.
ELM ST.
MASON RD.
MASON RD.
NEW FITCHBURG RD.
RTE. 13
RTE. 13
TOWNSEND
TOWNSEND
TOWNSEND
TOWNSEND
TOWNSEND
TOWNSEND
TOWNSEND
TOWNSEND
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TOWNSEND
RTE. 13
RTE. 13
RTE. 13
RTE. 13
RTE.119
RTE.119
RTE.119
RTE.119
WEST ELM ST.
AT NEW HAMPSHIRE S.L.
WEST OF RTE.119
AT NEW HAMPSHIRE S.L.
NORTH OF MAIN ST.
SOUTH OF MAIN ST.
AT LUNENBURG T.L.
AT NEW HAMPSHIRE S.L.
NORTH OF BROOKLINE
ST.
NORTH OF HIGHLAND ST.
NORTH OF RTE.119
SOUTH OF RTE.119
AT PEPPERELL T.L.
EAST OF RTE.13
EAST OF SOUTH ST.
WEST OF SOUTH ST.
SOUTH OF RTE.119
Daily
Counts
Year
Measured
340
9500
450
4400
760
10,200
6,900
2003
2004
2003
2004
2004
2003
2003
6800
7700
2,100
10,900
13,000
12,800
12,400
13,900
2,200
2006
2006
2003
2003
2003
2003
2003
2003
2003
*These are the most recent traffic counts, we assume they are similar in 2008
Transportation Goals
A primary goal of transportation should be to reduce congestion on the main routes we all utilize.
Expansion of the roads is an obvious, however, very costly solution. Alternative and less costly
solutions could be to map and communicate additional routes to major highways (Rte 101, Rte 2 and
Rte 190). Public transportation is very limited in Townsend and can be expanded. Townsend is a
member of the Lowell Transit Authority for some specialty bussing. This could be expanded to
provide public transportation from a few points in Townsend, i.e., to the Fitchburg and/or Leominster
MBTA stations to expand Townsend public transportation to Boston.
Expanding non-automotive traffic will also help reduce congestion. Sidewalks should continue to be
expanded to increase foot traffic. State funding should be acquired to implement a Rail Trail in
Townsend to allow alternative transportation.
The Massachusetts Highway Department has projects identified in Townsend. We must ensure these
projects are funded by the state and completed. Bridge replacement is critical and should be
highlighted. A list of these projects is below.
MassHighway Department: Townsend Projects
603131
TOWNSEND- BRIDGE REPLACEMENT,
BR# T-07-001 SOUTH CENTRAL STREET
OVER THE SQUANNACOOK RIVER
Bridge Replacement
CONSTRUCTION
601220
LUNENBURG- TOWNSEND- MILLING &
RESURFACING, ROUTE 2A
(MASSACHUSETTS AVENUE), ROUTE 13
AND ROUTE 119
Resurfacing
DESIGN
601291
TOWNSEND- BRIDGE REHABILITATION,
BR# T-07-001 SOUTH STREET OVER THE
SQUANNACOOK RIVER
Bridge
Reconstruction/Rehab
DESIGN
601965
GROTON- PEPPERELL- TOWNSENDRESURFACING & RELATED WORK,
ROUTE 119
Resurfacing
DESIGN
603645
TOWNSEND- BRIDGE REPLACEMENT, T07-008, WHEELER ROAD OVER WILLARD
BROOK
Bridge Replacement
DESIGN
2009
604167
TOWNSEND- BRIDGE REPLACEMENT, T07-011, VINTON POND ROAD OVER
PEARL HILL BROOK
Bridge Replacement
DESIGN
2009
601374
TOWNSEND- BRIDGE REHABILITATION,
BR# T-07-005 OLD TURNPIKE ROAD
OVER SQUANNACOOK RIVER
Bridge
Reconstruction/Rehab
COMPLETE
603309
DISTRICT 3- CLEAN AND PAINT THREE
(3) STEEL BRIDGES
Painting - Structural
COMPLETE
27
The Highway department also needs to leverage the new Public Works building to reduce cost and
improve service to the town. Utilizing this building and a town Mechanic could help in fleet
maintenance and reduce the cost of that maintenance. A consolidation of Parks and Cemeteries and
Highway could also improve efficiencies and offer better services to the town by using all town
vehicles when they are most needed (an example is increasing the number of vehicles that can plow
during a snow storm).
Conclusion
In conclusion, the Master Plan Committee believes the people of Townsend want to keep Townsend a
rural town however the Committee also believes Townsend needs to improve its budget position.
There are limited areas to increase revenues, on average Townsend approves 28 new house permits
per year and we think new permits should continue to stay in this range. The Master Plan Committee
recommends that Townsend should leverage cross department resources and consolidations to reduce
cost, like the new highway department building. We also recommend the town needs to utilize a grant
writer or a grant writing firm to offset costs. This can increase grants to the town with minimal or no
costs. Improved technical capabilities and improved roads should be areas of focus and grants can be
utilized to achieve these goals. Another area that has to be addressed is 40B housing requirements.
We do not believe dramatic population or commercial growth is the goal of the town and it should not
be. We want to maintain the rural town we have and maintain or improve the services we offer while
providing a strong school system to our children.
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