Shirley Master Plan (Draft)

April 2017

Prepared by: Montachusett Regional Planning Commission (MRPC) with assistance from Shirley Planning Board

Disclaimer: This Draft Document contains text only. After public comments are received, the document will be reformatted/ enhanced with pictures included.

Contents Statement of Goals and Objectives ...... 4 SECTION 1 - HISTORIC AND CULTURAL RESOURCES GOALS AND OBJECTIVES ...... 5 SECTION 2 - SERVICES AND FACILITIES GOALS AND OBJECTIVES ...... 6 SECTION 3 - ECONOMIC DEVELOPMENT GOALS AND OBJECTIVES ...... 6 SECTION 4 - HOUSING GOALS AND OBJECTIVES ...... 7 SECTION 5 - TRANSPORTATION GOALS AND OBJECTIVES ...... 7 SECTION 6 - LAND USE GOALS AND OBJECTIVES ...... 8 SECTION 7 - OPEN SPACE AND RECREATION GOALS AND OBJECTIVES ...... 8 Historic and Cultural ...... 9 SECTION 1 - INTRODUCTION ...... 9 SECTION 2 - HISTORY ...... 9 SECTION 3 - INVENTORY AND DOCUMENTATION ...... 12 SECTION 4 - CULTURAL RESOURCES ...... 14 SECTION 5 - HISTORICAL/CULTURAL PLANS ...... 14 SECTION 6 - COMMUNITY INPUT ...... 15 SECTION 7 – HISTORICAL AND CULTURAL GOALS, OBJECTIVES AND RECOMMENDATIONS ...... 15 Services and Facilities ...... 42 SECTION 1 - INTRODUCTION ...... 42 SECTION 2 - SHIRLEY’S REVENUE RESOURCES AND TAX IMPLICATIONS ...... 42 SECTION 3 - ENTITIES THAT COMPRISE SHIRLEY’S TOWN GOVERNMENT ...... 44 SECTION 4: SERVICES AND FACILITIES GOALS, OBJECTIVES AND RECOMMENDATIONS ...... 54 Economic Development ...... 59 SECTION 1 - INTRODUCTION ...... 59 SECTION 2 - ASSESSMENT OF SHIRLEY’S CURRENT ECONOMIC BASE ...... 59 SECTION 3: ECONOMIC DEVELOPMENT GOALS, OBJECTIVES AND RECOMMENDATIONS ...... 67 Housing ...... 72 SECTION 1 - INTRODUCTION ...... 72 SECTION 2 - COMPREHENSIVE HOUSING NEEDS ASSESSMENT ...... 72 SECTION 3: HOUSING GOALS, OBJECTIVES AND RECOMMENDATIONS ...... 85 Transportation and Circulation ...... 91 SECTION 1 - INTRODUCTION ...... 91 SECTION 2 - ROLE OF THE REGIONAL PLANNING AGENCY ...... 91 SECTION 3 - ROADWAY SYSTEM ...... 95 2

SECTION 4 - AVERAGE DAILY TRAFFIC (ADT) ...... 97 SECTION 5 - ROADWAY SAFETY ...... 98 SECTION 6 - PAVEMENT CONDITION...... 101 SECTION 7 – BRIDGES ...... 104 SECTION 8 - PUBLIC TRANSIT SYSTEM ...... 104 SECTION 9 - OTHER TRANSPORTATION SYSTEMS ...... 105 SECTION 10 - BICYCLES AND PEDESTRIANS ...... 106 SECTION 11 – TRANSPORTATION GOALS, OBJECTIVES AND RECOMMENDATIONS ...... 108 Land Use ...... 119 SECTION 1 - OVERVIEW ...... 119 SECTION 2 - CONDITIONS AND DEVELOPMENT TRENDS ...... 121 SECTION 3 - WATER SUPPLY AND SEWER SYSTEM ANALYSIS ...... 126 SECTION 4 - EXISTING LAND USE REGULATIONS ...... 127 SECTION 5 -DEVELOPMENT POTENTIAL AND BUILD OUT ANALYSIS ...... 139 SECTION 6 – LAND USE GOALS, OBJECTIVES AND RECOMMENDATIONS ...... 144 Implementation Schedule ...... 147 IMPLEMENTATION SCHEDULE: SHORT-TERM ...... 148 IMPLEMENTATION SCHEDULE: MID-TERM ...... 149 IMPLEMENTATION SCHEDULE: LONG-TERM ...... 156

Statement of Goals and Objectives

Over time communities grow whether through an increase in population, housing, and/or economic development activity. Managing growth has always been a considerable challenge for local governments. Shirley planners recognize the need for a community Master Plan in order to help local officials act in concert on a common agenda for the long-range good of the Town. Without planning and structure, the chances of optimizing the best and highest value of human, natural and capital resources is diminished.

Massachusetts General Law (Chapter 41, section 81D) states that a town shall make a Master Plan. A Master Plan is advisory and does not impose additional requirements or regulations on the town. It can provide a basis for future regulatory changes that are desired by the community. The purpose of the Master Plan is to provide a guide for the town’s future that will help town boards and organizations coordinate their regulations, decisions and actions. A Town Plan acts as a guide for all development and furnishes public bodies with a long-range guide for the public decisions that are necessary to the viability and growth of the Town. A Plan should never be conceived of as a permanent, fixed document expressing the last word on the future of the community. Instead, it should periodically be revised and updated to reflect population changes and occasionally reconsidered to address changed attitudes in the community regarding land use regulations. It should be noted that a Master Plan can be updated at any time.

The Town of Shirley began its work on the Shirley Master Plan update in the winter of 2015. The Town was able to secure technical assistance from the Montachusett Regional Planning Commission’s (MRPC) District Local Technical Assistance (DLTA) Program to cover the cost of updating the Economic Development Element and to conduct a Community Survey/Report. MRPC’s DLTA Program is funded by the Commonwealth of Massachusetts. The Town also appropriated funds in an effort to complete additional elements of the Master Plan, and the Montachusett Regional Planning Commission was hired to provide technical assistance throughout this process. To date, drafts of the Transportation Element, Economic Development Element, Housing Element, Historical and Cultural Element, Land Use Element, and Services and Facilities Element have been completed and work was commenced on the Implementation Plan Element after funding was attained by the Town in fall 2016.

An interactive public process to determine community values, goals, and to identify patterns of development that is consistent with these goals has been followed. The Town sponsored a public forum on June 9, 2015, to solicit public input into the process. MRPC was assigned the responsibility of drafting outreach flyers/documents that were distributed, helping to organize the agenda, facilitating the workshop itself as well as providing staff assistance and refreshments for participants. MRPC then drafted a report on the findings of the public forum that was reviewed by local officials and posted on the Town’s website for public viewing (See Appendix A).

The attendees at the monthly Shirley Meeting of the Chairs, organized by the Town Administrator, also reviewed each draft element. Presentations of draft elements were made at Planning Board meetings open to the public and all attendees were always welcome to comment. The Town will continue to reach out to the general public and other local boards, committees, commissions, and departments along the way, to provide an opportunity for anyone interested to participate and provide 4

valuable input.

A Community Survey was also undertaken as part of the scope of this Statement of Goals and Objectives. The Town employed a town-wide citizen survey asking Shirley residents a series of questions covering such topics as: land use, zoning, housing, economic development, open space, recreation, services and facilities, and growth. MRPC assisted by formulating a draft survey for approval by the Town, furnishing copies of the final survey, and labor to tabulate completed surveys along with a report of survey results. The survey was sent to every household in Shirley in August 2015 and was available on the Town’s web site. There were 323 responses received in fall 2015. The survey results were placed on the Town’s website and presented by MRPC staff to both the Shirley Board of Selectmen and Planning Board. The Community Survey Report is attached as part of this Statement of Goals and Objectives Element (See Appendix B).

In addition to the Community Survey, this element of the Master Plan for the Town of Shirley sets forth the following community goals and objectives necessary for developing strategies to employ when guiding Shirley as it continues to grow and develop over the coming decades and plotting a smart and prudent direction for Shirley’s future development.

______SECTION 1 - HISTORIC AND CULTURAL RESOURCES GOALS AND OBJECTIVES

GOAL:

• Preserve the Town’s historic fabric and protect the quality of our cultural resources to ensure a vibrant, diverse, sustainable community.

OBJECTIVES:

• Revisit and Strive to Implement Recommendations made in the Shirley Reconnaissance Report. • Review the Massachusetts Cultural Resource Information System (MACRIS) for any Inaccurate Information and Make Note of Additional Properties that should be Included. • Be Aware of Preservation Restrictions (MGL Chapter 184, sections 31-33) and Conservation Restrictions (MGL Chapter 184, sections 31-33). • Enhance Public Education in terms of Historic Preservation. • Be Aware of the Massachusetts Preservation Project Fund • Work with the Johnny Appleseed Trail Association, Inc., and Visitor Center • Keep up to Date with Training that MHC has to Offer. • Reconsider the Community Preservation Act (CPA) that could Promote Historic Preservation.

______SECTION 2 - SERVICES AND FACILITIES GOALS AND OBJECTIVES

GOAL:

• Provide excellent, cost effective, accessible facilities, services, and programs reflecting values respectful of our ages and diversity, which, through collaboration, contribute to a high quality safe, civil, healthy, and sustainable community.

OBJECTIVES:

• Regionalize and/or Consolidate Services. • Revisit the DOR 2008 Financial Management Review. • Establish a Master Plan Implementation Committee. • Continue to Enhance Coordination between Municipal Departments. • Continue Efforts to Coordinate Town and Community Services to the Benefit of Shirley’s Residents. • Continue to Pursue Grant Opportunities under the MA Green Communities Program. • Develop Training and Materials for New Board/Committee/Commission Members. • Create an Organizational Flow Chart. • Expand the Town’s Information Technology by continuing to Utilize MR. Mapper. • Develop a Permitting Guidebook.

______SECTION 3 - ECONOMIC DEVELOPMENT GOALS AND OBJECTIVES

GOAL:

• Promote Economic Development that is consistent with the desired Town character.

OBJECTIVES:

• Prepare a Retail Market Study to Identify Potential Business. • Develop a Marketing Brand for the Community. • Include the Town’s Economic Development information on the Town’s Website. • Consider Recreation and Culture as Economic Development Activities. • Explore Identified Commercial and Industrial Zoned Areas for Development Potential. • Use Tax Increment Financing (TIF) and other Incentive Programs to Stimulate Investment in Desired Development Areas. • Aggressively Seek Funding for Road Improvements. 6

• Include a New Use of Industrial/Commercial Mixed Use within the Existing Industrial District. • Look to Expand Existing Commercial and Industrial Districts including the Village and Mixed Use districts.

______SECTION 4 - HOUSING GOALS AND OBJECTIVES

GOAL:

• Ensure that Housing Opportunities are Available for a Broad Range of Income Levels and Household Types including Affordability, Homeownership, and Condition of the Housing Stock while Maintaining the Town’s Character.

OBJECTIVES:

• Promote the Use of the Low Impact Development Bylaw. • Continue to apply for Community Development Block Grant (CDBG) Funds for Housing Rehabilitation. • Explore preparation of a Planning Assistance Toward Housing (PATH) grant application to Mass. DHCD for Implementation of this Housing Element to meet Housing Goal and Objectives. • Reconsider the Community Preservation Act (CPA) as a Smart Growth Tool that Could Promote Housing. • Consider revisions to current regulations for senior and assisted-living housing. • Facilitate long-term affordability of energy in housing. • Collaborate with Private Non-Profit Organizations (e.g., Habitat for Humanity and MEC). • Monitor Foreclosures. • Strive to Comply with Chapter 40B.

______SECTION 5 - TRANSPORTATION GOALS AND OBJECTIVES

GOAL:

• Construct and maintain a safe road system that is consistent with the desired rural character of Shirley.

OBJECTIVES:

• Continue Proactive Town Participation with MRPC. • Schedule Traffic Counts with MRPC. • Promote Traffic Calming Efforts. • Construction and Rehabilitation of Sidewalks. • Establishing a Regional Trail Network.

• Conduct a Comprehensive Circulation Study/Plan. • Encourage the Commonwealth to further investigate the Structure, Function and Scour Ratings of Key Bridges. • Conduct and Maintain an Inventory of Culverts. • Strengthen Public Transportation. • Create a Crash Monitoring System. • Seek Local and Federal Funding for Eligible Roads.

______SECTION 6 - LAND USE GOALS AND OBJECTIVES

GOAL:

• Preserve those elements and features that contribute to Shirley’s New England town character as a residential community while promoting economic development and a high standard of environmental quality.

OBJECTIVES:

• Facilitate the Existing Permitting Process. • Review/Analyze Current Zoning Bylaws/Ordinances. • Identify New Areas or Expansion of Existing Areas Suitable for Commercial/Industrial Development. • Reconsider the Community Preservation Act (CPA) to Promote Open Space, Historic Preservation, and Housing. • Explore the Possibilities of Transfer of Development Rights. • Research and Evaluate Agricultural Protection Zoning.

______SECTION 7 - OPEN SPACE AND RECREATION GOALS AND OBJECTIVES

Insert Goals and Objectives - The Shirley Open Space and Recreation Plan (OSRP) will be utilized to facilitate the completion of this Element.

Historic and Cultural ______SECTION 1 - INTRODUCTION

Historic and cultural preservation involves the entire Community - there are culturally and historically significant structures and sites throughout the Town. Additionally, there are numerous events, celebrations, and organizations that add to the Town’s cultural heritage. Shirley’s past is linked to its present and its future. These resources enrich and enhance the community, build civic pride, and help define Shirley’s identity. Maintaining, restoring, and reusing historic properties can preserve neighborhood character, protect the tax base by maintaining value, and attract businesses looking for communities with a high quality of life, a sense of pride, character, and a rich historic and cultural fabric. Equally important as preserving historic sites is preserving traditions through annual celebrations and events that attract Shirley residents and visitors. Historic and cultural preservation is important in the land use planning process. Awareness of cultural and historic resources is crucial in crafting policy and land use patterns that support and enhance protection and preservation.

The Town’s most recent master plan was adopted in October, 2004, and includes an open space and recreation inventory, as well as recommendations to promote zoning, housing, transportation, and economic development. Much of the narrative in this chapter was obtained from this document, the Town’s official website, and Shirley’s Historical Society. The towns of Shirley and Ayer created the regional Ayer-Shirley School District in 2011. Additionally, as a result of recent work with MRPC, the Town of Shirley was awarded Community Development Block Grant (CDBG) funds for housing rehabilitation and was included in the Montachusett Region Hazard Mitigation Plan 2015. Using all of the above information, this chapter identifies Shirley’s existing cultural and historic resources as well as the protection and preservation policies in place today. It also looks at policies and goals for the future. Finally, recommendations are made, with the ultimate goal of protecting Shirley’s cultural and historic resources into the future.

______SECTION 2 - HISTORY

The history of Shirley is intimately tied to the character of the landscape. As described in the Town’s official website, Shirley is located in Middlesex County about 50 miles northwest of Boston and only a town or two from the New Hampshire border.

“Shirley is situated in the northwesterly part of Middlesex County. It is thirty miles in the same direction from Cambridge, and twenty miles southwest from Lowell, the two shire-towns of the county.

“The town is of irregular form, being seven and one-half miles in extent between its extreme north and south points, and just four miles broad at its greatest width. It contains nearly ten thousand five hundred and twenty-five acres, or about sixteen and one-half square miles, according to the survey made by Caleb Butler in 1832.” (Chandler, Seth - History of the Town of Shirley, Massachusetts, from its early settlement to A.D. 1882, 1883. p. 3).

The soil presents an undulated surface, and rises in some parts to considerable elevations, creating thus the conditions for a settlement. The declivities present in the hills create a favorable surface for building of roads, farming, and cultivating the 9

soil. Before European settlement, the area was inhabited by the Nipmuc (or Pennacook) Indians, who called the area Catacunemaug. Like other towns in the highlands of Worcester County, Shirley’s settlement by the English began in the aftermath of the King Phillip’s War of 1675. The following time line with the most important events in Shirley`s history was taken from Shirley Historical Society website, and supported by other sources such as the National Park Services.

In 1665, the Town was part of the territory granted to Dean Winthrop, son of Governor Winthrop, which was named Groton in honor of his former home, Groton, England. Shirley was first settled by English pioneers around 1720, when the first mills and farms were established along the Squannacook River and the Mulpus Brook. More than 25 years later, thirty-three petitioners from the part of Groton south and west of the Squannacook and Nashua Rivers asked to be set off from the town and allowed to build their own meetinghouse. In 1753, the territory was separated from Groton and incorporated as a district named after Colonial Governor William Shirley.

In the early days of New England, towns were formed around church centers. In fact, one of the first committees formed by the citizens of the new district was tasked with finding the center of town so that a meeting house could be built. Since the first settlers were mainly farmers who did not own horses, the ten miles walk to Groton was a hardship for most. thus Shirley’s first meetinghouse was a simple one, built in 1754 on Green Lane, near Parker Road. As the town grew, however, the small building was not adequate. By 1773, the First Parish Meetinghouse was erected in the middle of the Town Common. Finally, in 1775 a general act was passed in which all districts became towns and thus the Town of Shirley was born. In the early 1800’s, there were divisions in churches all over New England. The newly won independence in matters of government was reflected in a movement for independent ideas regarding religion. The Believers in the Second Appearing of Christ (or Shakers) had already withdrawn from the town supported church by this time.

A paper mill was built in Shirley in 1790 and in 1812 Shirley established the first of seven cotton mills. In 1793, the Shirley Shaker Community was formally established. Renowned for their plain architecture and furniture among other things, the Shakers advocated pacifism, common property, celibacy and communal living. The Shirley Shakers were not known for their baskets, boxes, or chairs, but for their brooms, mops and applesauce. Their community was also unique among the Shakers in that they built a large cotton manufactory on the banks of the Catacunemaug. When their workforce declined, they leased the factory to a company from New Bedford. Later the buildings were sold and a cordage factory produced rope for over 100 years.

The Shaker movement peaked in the 1840s. With abundant apples trees, the Shirley Shakers utilized their natural resources and maintained a profitable applesauce industry throughout the 19th century. By 1850, at its height, the Shirley Community had a Church Family with meetinghouse, large dwelling, brick office, brick wash house, brick trustees’ shop, several barns, and other wooden shops and dwellings. The North Family was the novitiate and had a three-story brick shop, small office, large dwelling, broom shop, and several barns and sheds. The South Family, over the line in Lancaster, had an office, dwelling, shop, and barn; and also, had a home for the aged. According to the state census, there were 114 Shaker men, women and children in the Shirley Community at that time. The enterprise gradually dwindled until the Village closed in 1908 – only 13 of the 26 original buildings remain to tell the story of the Shirley Shaker Village.

Travel was a hardship for much of the Town’s early history. The men of Shirley failed to arrive on time to the battles of Concord and Bunker Hill because of the great distance and the lack of passable roads through the hills, wilderness and river valleys separating Boston from the land of the Shakers. As commerce in the state expanded Shirley lagged because of the circuitous stage routes and poor communication with Lowell and Boston. This all changed for the better in the mid-19th

century with the coming of the Fitchburg Railroad. Around the time Chandler’s history was published, Massachusetts boasted one of the densest system of rail lines in the nation. Competition among such lines as the Boston & Lowell, Peterboro & Shirley, and the Worcester & Nashua allowed convenient and efficient travel almost anywhere in the country for both business and pleasure. Nevertheless, commerce in the state suffered for a lack of access to the west and its wealth of commodities and trade. Plans for a canal through the contours of the valleys of Central Massachusetts had been in existence since early century. However, it was the prospect of a tunnel through the Hoosac Mountain that would connect Boston to Albany that excited the barons of commerce and manufacture in Boston. The father of the Fitchburg Railroad, Alvah Crocker, took on this project and $20 million, 25 years and 195 lives later, the first major tunneling project in the United States was completed. Northern New England was thus transformed into a major manufacturing region by way of the Fitchburg Railroad and its tunnel.

The many textile mills of 19th century Shirley – including its famed seven cotton mills powered by the waters of the Squannacook and the Catacunemaug - gave way after the advent of the railroad, electricity, and the telephone to larger products such as the steam engine. The area’s industrial heyday soon waned as globalization swept the family owned businesses beginning in the early 20th century. Through it all Shirley remained largely an agricultural economy. Today, little is left of Shirley’s industrial past, but a new wave of change is underway to remake the area’s economy in a new age of biotech, advanced manufacturing, information and communications.

In 1917, at the onset of America’s entry into World War I, the United States government leased and later purchased land in southeast Shirley, as well as Ayer, Harvard and Lancaster for the establishment of a military base called Camp Devens. The base became a monumental construction site as the US government sought quickly to train tens of thousands of US troops to embark to the trenches of France and the Great War in Europe. After the war the camp eventually became a permanent Army base and was renamed Fort Devens. In 1940 during the first peacetime draft Devens once again became a center for wartime preparation. During the second world war Fort Devens trained nurses, chaplains, cooks and bakers as well as troops for infantry division. Moore Army Airfield was established in 1941. After the war the base became an important center for thousands of officers and enlisted men who through the benefits of the GI Bill of Rights trained in the Army Security Training Center. The University of Massachusetts and Harvard University had extensions at Devens. The Fort again served as an embarkation point for the conflicts in Korea, Viet Nam and Operations Desert Storm and Desert Shield. The base was formally closed in 1996 under the Base Realignment and Closing Act. The land was distributed to the Federal Bureau of Prisons, Shriver Job Corps, the Massachusetts National Guard, Massachusetts Veterans and MassDevelopment, which purchased the bulk of the property for $17 million.

MassDevelopment, a quasi-public economic development and real estate agency, has undertaken to redevelop the base into a sustainable residential and business community. The goal of MassDevelopment is to stimulate economic activity and job creation. Devens has become a national model for military base reuse and is a showcase for the planned business community. The community is governed by the Devens Committee, an elected committee that serves as an advisory committee to MassDevelopment, but the residents of Devens are not represented in the state legislature. Since 2003 a debate over the future governance of Devens has been ongoing. The question of whether Devens should become a town in the Commonwealth has been voted down twice.

Base closure meant the loss of thousands of jobs for the area. Left behind were outdated buildings that were environmentally hazardous. MassDevelopment’s proposal provided welcome relief for the host towns including Shirley. However, now that the community is a thriving economic hub, the question is should the towns reclaim the land, along with its tax revenues 11

and municipal expenses, or should it allow Devens to become its own town. Shirley has twice decided that it would rather not take on the carrying costs of Devens massive infrastructure and services despite its tax revenue potential.

In 1972, the Commonwealth of Massachusetts opened a prerelease correctional facility on the Shirley Shaker Village site. Massachusetts Correctional Institution – Shirley is a medium-security state prison and also contains a minimum-security section which houses less dangerous prisoners. The complex located directly to the north of the Souza-Baranowski Correctional Center is a maximum-security facility that was added in 1998. In 1976, the Shirley Shaker Village became a National Historic Register Site as part of the Department of the Interior’s strategy to promote public awareness of history and encourage tourists to visit historic places throughout the nation.

In 1985, Shirley voters approved their first Master Plan, which was updated in 1999, 2004, and, with the help of MRPC, in 2017. In 2001, Shirley was named the Most Historic Small Town in the nation by ePodunk.com, and in 2003 the Town celebrated its 250th Anniversary and received a grant from the Massachusetts Department of Fisheries and Wildlife to purchase the Longley Farm on Whitney Road near the First Parish Meetinghouse for conservation purposes.

______SECTION 3 - INVENTORY AND DOCUMENTATION

NATIONAL REGISTER OF HISTORIC PLACES

The National Register of Historic Places is the official list of the American cultural resources worthy of preservation. Authorized under the National Historic Preservation Act of 1966, the National Register is part of a national program to coordinate and support public and private efforts to identify, evaluate, and protect our historic and archeological resources. Properties listed in the National Register include districts, sites, buildings, structures and objects that are significant in American history, architecture, archeology, engineering, and culture. These resources contribute to an understanding of the historical and cultural foundations of the nation. The National Register includes: • all historic areas in the National Park System; • National Historic Landmarks which have been designated by the Secretary of the Interior for their significance to all Americans; and • properties significant to the nation, state, or community which have been nominated by the states, federal agencies and others and have been approved by the National Park Service. National Register properties have been documented and evaluated according to uniform standards. The Secretary of the Interior’s National Register criteria for evaluation and documentation standards are used by every state and territory and by federal agencies to identify important historic and archaeological properties worthy of preservation and of consideration in making planning and development decisions.

The structure or site must A) be associated with events that have made a significant contribution to the broad patterns of history; B) be associated with the lives of significant persons in the past; C) embody the distinctive characteristics of a type, period or method of construction, or that represent the work of a master, or that possess high artistic values, or that represent

a significant and distinguishable entity whose components may lack individual distinction; or D) have yielded, or may be likely to yield, information important in prehistory or history. More details on criteria can be found at www.nps.gov/nr/publications/bulletins/nrb15/CriteriaforEvaluation.

According to the criteria established by the National Register of Historic Places, a structure or group of structures must be at least fifty years old to qualify for inclusion in the National Register. Listing brings a number of benefits including recognition, consideration when federally or state funded projects may impact the resource, eligibility for tax credits, and qualification for certain grant programs. It should be noted that being in the National Register does not: impose any restrictions on an owner regarding alterations or use, provided that no federal license, permit, or funding is involved; require owners to open properties to the public or to restore or even maintain them; and require signs, banners, or any other notice declaring that “This is an Historic Place.” Resources on the National Register are automatically added to the State Register of Historic Places.

The “Shirley Village Historic District” was listed in the National Register of Historic Places. It was listed January 1992. The District is located in the southern part of the town, contains 441 properties, and its focus is the intersection of five principal streets: Main Street and Center, Leominster, Lancaster and Harvard Roads. The Shirley Village Historic District includes properties along the principal thoroughfares (Leominster, Lancaster, Center and Harvard Roads, and Main and Front Streets) and secondary streets (Maple, Haskell, South, Fredonian, Church, Mill, Chapel, Page, Porter, Washington, Phoenix, Tolman, Whiteley, Nashua and Davis Streets; Munson and Rodman Avenues; and Shaker and Benjamin Roads).

In addition, the Shirley Shaker Village was named as one of the 1,000 places to visit in Massachusetts by the Great Places in Massachusetts Commission. The Village includes 13 of the 26 original Shaker buildings, and is also listed in the National Register of Historic Places.

MASSACHUSETTS HISTORICAL COMMISSION

The Massachusetts Historical Commission (MHC) has developed an Inventory of Historic and Archaeological Assets. It identifies significant historic resources throughout the Commonwealth. In order to be included in the inventory, a property must be documented on an MHC inventory form, which is then entered into the MHC database. This searchable database, known as the Massachusetts Cultural Resource Information System (MACRIS), is now available online at http://mhc- macris.net/. Information on the specific locations of archaeological sites is not available to the general public in order to protect these sensitive and non-renewable cultural resources.

MACRIS lists historical assets in five categories: Buildings, Areas, Structure, Object, and Burial Ground. The full printout of each category (as of August 2015) can be found at the end of this chapter. Shirley’s MACRIS inventory documents 437 Buildings, 15 Areas (including the Shirley Village Historic District and the Shirley Shaker Village), 10 Structures (i.e. ponds, bridges, commons, etc.), 1 Object consisting of a Civil War Memorial, and 3 Burial Grounds (Center Cemetery located on Brown Road, Shirley Village Cemetery located on Harvard Road, and Saint Anthony Cemetery located on Shaker Road.

______SECTION 4 - CULTURAL RESOURCES

Cultural resources include historic buildings and their settings, agricultural outbuildings, archaeological remnants and features, and archaeologically sensitive areas. Landscape features such as stone walls and foundations, burial grounds and cemeteries, trails and historic trees are an important part of Shirley’s history and contribute to its cultural resource inventory.

Shirley has three historic districts, with one listed on the National Register of Historic Places, and one local historic district established under M.G.L. c.40C: the Shirley Center Historic District, the Shirley Center Local Historic District, and the Shirley Village Historic District (all can be found in the MACRIS inventory in the ‘Area’ category). The Shirley Village Historic District (included in the National Register of Historic Places) is a beautiful, well preserved example of a traditional New England village and is listed as a scenic area in the Massachusetts Landscape Inventory (1982). It is historically significant because it dates to 1753, when Shirley separated from Groton. Shirley Center retains the original character of a pre-Revolutionary farming community with predominately residential buildings and municipal buildings focused around a town common. The district was listed on the National Register of Historic Places in 1988 and it includes 59 properties. It encompasses the Shirley Center Local Historic District, established in 1973, which includes 41 properties.

______SECTION 5 - HISTORICAL/CULTURAL PLANS

According to the National Park Service, the Historic Preservation Planning Program develops national policy related to historic preservation planning. Preservation planning is the rational, systematic process by which a community develops a vision, goals, and priorities for the preservation of its historic and cultural resources. The Shirley Reconnaissance Report: the Massachusetts Department of Conservation and Recreation (DCR) and its regional partner, the Freedom’s Way Heritage Association (FWHA), have collaborated to bring the Heritage Landscape Inventory program to fifteen communities in central Massachusetts including the Town of Shirley. The final product for each community is an individualized Heritage Landscape Reconnaissance Report. The report outlines the community’s landscape history, discusses broader land planning issues identified by the community, describes the priority heritage landscapes and issues associated with them, and concludes with preservation recommendations. The Shirley Reconnaissance Report can be found at http://www.mass.gov/eea/docs/dcr/stewardship/histland/recon-reports/shirley-with-map.pdf.

As part of the Reconnaissance Report, each town involved in the Freedom’s Way Heritage Association, including the Town of Shirley, held a local identification meeting to solicit input from a range of community members to identify potential heritage landscapes throughout the town. The lists were prioritized by the community, with help from consultants, to create a list of landscapes grouped by land use category. The complete list of the Shirley’s 73 heritage landscapes is included at the end of this chapter and provides a useful resource for future documentation activities and potential funding opportunities. Shirley’s meeting was held on March 7, 2006, and the follow-up fieldwork on April 20, 2006.

______SECTION 6 - COMMUNITY INPUT

The Town of Shirley, assisted by MRPC, sent out a town-wide citizen survey asking each Shirley household a series of questions covering such topics as: housing, economic development, services and facilities, open space, recreation, natural and cultural resources, zoning, land use, and transportation. The survey was sent to every household in town (approximately 2,200) and was also available in electronic format, and was closed on September 30, 2015. In addition, on June 9, 2015 the Shirley Planning Board held a public forum where the participants engaged in a direct dialogue with the planning staff from MRPC. The survey received 323 responses, and among the many questions and topics discussed, 57 percent mentioned ‘rural character’ as being a reason for choosing to reside in Shirley, and 6.5 percent mentioned Historical Assets and Cultural activities as a reason.

______SECTION 7 – HISTORICAL AND CULTURAL GOALS, OBJECTIVES AND RECOMMENDATIONS

GOAL:

Preserve the Town’s historic fabric and protect the quality of cultural resources, to ensure a vibrant, diverse, sustainable community.

OBJECTIVES:

RECOMMENDATIONS:

1. The Town should revisit and strive to implement recommendations made in the Shirley Reconnaissance Report. Although this report is more than 10 years old, much of it remains relevant. The report includes a listing of seven (7) prioritized heritage landscapes (Ayers Creamery, Green Lane, Longley Homestead and Fields, Mulpus Brook Mill Ruins, Phoenix Mill Complex, President Mill and Catacunemaug Brook, and Shirley Village), accompanied by recommendations. A heritage landscape is defined as “a special place created by human interaction with the

natural environment that helps to define the character of a community and reflect its past.” The report also includes existing resource documentation and planning tools, and general preservation planning recommendations. The Town should start by reviewing this document and listing recommendations that have not yet been implemented.

Responsible Municipal Entity: Shirley Historical Commission.

2. The Town should review the Massachusetts Cultural Resource Information System (MACRIS) for any inaccurate information and make note of additional properties that should be included in the inventory. In order to be included in the inventory, Massachusetts Historical Commission (MHC) guidelines need to be followed to determine qualifications and then the property must be documented on an MHC inventory form (forms can be found at www.sec.state.ma.us/mhc/mhcform/formidx.htm.), which is then entered into the MHC database.

As the local organization responsible for historic preservation planning, the Shirley Historical Commission should work on this task. Moreover, it would be particularly useful for the Shirley Historical Commission to develop a plan for an active and ongoing program to initiate, maintain, update, and expand the community-wide inventory of historical and cultural resources.

Responsible Municipal Entity: Shirley Historical Commission.

3. The Town should be aware of Preservation Restrictions (MGL Chapter 184, sections 31-33) and Conservation Restrictions (MGL Chapter 184, sections 31-33). Preservation restrictions could potentially be used for specific properties of historical significance to work hand-in-hand with a historic district bylaw. Since a local historic district bylaw only assists in the preservation of exterior features visible from a public way, the town may want to work with some owners on implementing preservation restrictions. A preservation restriction is a legal agreement between a property owner and another party, usually a non-profit organization or government body. Such an agreement “runs with the land,” governing the use of the property by current and future owners. For the owner of a National Register listed property, a preservation restriction may qualify as a charitable tax deduction. It may also reduce the assessed value of the property, resulting in property tax savings. For the community, the preservation restriction is a very effective method of preserving a structure, both inside and outside, and its setting. A preservation restriction can assure the following:

• Protection of the exterior and/or interior features of the structure. • Protection of the appearance or condition of the site. • Protection of archaeological resources.

While a preservation restriction might be used to protect a historic building or archeological site, a conservation restriction can be used to protect open space such as scenic vistas, open farmland or natural areas. Similar to a preservation restriction, ownership of the property can remain in private hands but the rights to develop the property are donated or sold by the owner to a governmental agency or private, non-profit organization (such as a land trust). Conservation restrictions must be approved by the Secretary of Environmental Affairs. The responsible entity for working on this bylaw would be the Historical Commission in communication with the Planning Board and Conservation Commission.

Responsible Municipal Entity: Shirley Historical Commission in communication with the Planning Board and Conservation Commission.

4. Public Education is an important component of historic preservation. Owners of historic properties should be educated about the importance of voluntarily maintaining historic structures against decay, deterioration, and structural damage to avoid possible loss of historic resources. Owners of historic structures may be unaware of a property’s historic or architectural significance and, as a result, may alter or destroy the structure or site without having a full appreciation of the impact of their actions.

Additionally, it should be noted that many residents are not life-long residents. Are these residents cognizant of the unique history, buildings, and landscapes right in their own neighborhood? Letting them know about all the wonderful things still right there could improve public awareness that the community’s historic resources are worth preserving. Slide shows, newspaper articles, and library displays are just a few examples of public education. Some communities have also used plaque programs to educate the public about the history of the community. A plaque program can provide homeowners, eligible for a plaque, with a sense of pride in owning a historic building. The Massachusetts Historical Commission can be contacted for a list of communities in Massachusetts with a plaque program.

To increase public awareness, the Shirley Historical Commission could work to increase its presence through the Town’s website and perhaps partnering with Shirley Public Schools to find students interested in assisting with research, cataloguing, and grant writing activities. Over time, the Historical Commission could create an internship. Historical Commission members could also seek training to help them better understand the preservation tools available to them and the Town. They would also be in contact with other boards dealing with similar issues, and would gain exposure to new preservation tools as they are introduced. One opportunity for such training would be the University of Massachusetts Citizen Planner Training Collaborative (CPTC) through the UMass Cooperative Extension, which offers a series of regional workshops on land use and planning, in addition to annual conferences. CPTC events are relatively inexpensive to attend.

Responsible Municipal Entity: Shirley Historical Commission.

5. The Town of Shirley should be aware of the Massachusetts Preservation Project Fund is a state-funded matching grant program (in years when the Commonwealth authorizes funds) available for the preservation of properties, landscapes, and sites listed in the State Register of Historic Places. Applicants must be a municipality or non-profit organization. Examples of eligible projects include stabilization, protection, rehabilitation, restoration, and acquisition. The responsible entity would be the Shirley Historical Commission with Planning Board support. It should also be noted that Community Preservation Act (CPA) funds (if the Town decided to eventually participate in CPA) could enable the Town to apply for matching grants from the state to conduct preservation studies and prepare National Register nominations.

According to MHC, eligible activities include completion of cultural resource inventories, nomination of significant properties to the National Register of Historic Places, completion of community-wide preservation plans, and additional types of studies and reports relating to the identification and protection of significant historic properties and sites. Additional information can be found at (http://www.sec.state.ma.us/mhc/mhchpp/Surveyandplanning.htm

Responsible Municipal Entity: Shirley Historical Commission with Planning Board support.

6. The Town should Work with the Johnny Appleseed Trail Association, Inc., and Visitor Center to encourage sustainable cultural tourism which can help to preserve Shirley’s unique character while strengthening and diversifying the local economy.

Responsible Municipal Entity: Shirley Historical Commission with Planning Board support.

7. The Town should keep up to date with any kind of training that MHC might have to offer. In the past, MHC has held On the Road workshops offered to local historical commissions, historic district commissions, local historic district study committees, and the general public. The MHC “On the Road Program” includes modules such as an Introduction to Historic Preservation Planning, Establishing Local Historic Districts, and preparing Inventory Forms. Shirley could also consider having the Montachusett Regional Planning Commission organize/facilitate/recruit presenters for a regional workshop for MRPC Member Communities.

Responsible Municipal Entity: Shirley Historical Commission.

8. Reconsider the Community Preservation Act (CPA) as a smart growth tool that could promote historic preservation. As stated in the Master Plan Housing chapter, participation in the Massachusetts Community Preservation Act has previously been proposed in Shirley, but it has not yet been brought to a vote at Town Meeting. CPA is a smart- growth tool that helps communities preserve open space and historic sites, create affordable housing, and develop outdoor recreational facilities. CPA allows communities to create a local Community Preservation Fund for open space protection, historic preservation, affordable housing and outdoor recreation.

Responsible Municipal Entity: Board of Selectmen and Planning Board.

Below is a listing from the Massachusetts Cultural Resource Information System (MACRIS) for Shirley. This information includes buildings, areas, structures, objects, and burial grounds.

BUILDINGS

MACRIS Search Results Search Criteria: Town(s): Shirley; Resource Type(s): Building; Inv. No. Property Name Street Town Year SRL.101 Ayer Rd Shirley c 1800 SRL.366 Going, John - Huse, John - Williams, 12 Ayer Rd Shirley c 1830 Emery House SRL.367 Former Harness Shop 16 Ayer Rd Shirley c 1880 SRL.371 MacElroy, Manzor A. House 26 Ayer Rd Shirley c 1915 SRL.373 28 Ayer Rd Shirley c 1925 SRL.374 Main Street Garage 34 Ayer Rd Shirley 1919 SRL.375 Farrar, Clara House 40 Ayer Rd Shirley 1918 SRL.98 Benjamin House 42 Ayer Rd Shirley 1860 SRL.376 46 Ayer Rd Shirley c 1875 SRL.99 48 Ayer Rd Shirley c 1850 SRL.378 52 Ayer Rd Shirley c 1850 SRL.379 56 Ayer Rd Shirley c 1850 SRL.380 58 Ayer Rd Shirley c 1870 SRL.100 Shirley Schoolhouse 62 Ayer Rd Shirley 1786 SRL.381 Chaplin, Charles House 66 Ayer Rd Shirley c 1862 SRL.382 70 Ayer Rd Shirley c 1869 SRL.63 Benjamin Rd Shirley c 1850 SRL.64 Livermore House Benjamin Rd Shirley c 1770 SRL.280 Farrar, Henry W. - Westover, John 4 Benjamin Rd Shirley 1921 House SRL.279 Farrar, John House 8 Benjamin Rd Shirley c 1926 SRL.237 617 Benjamin Rd Shirley c 1910 SRL.55 Brownson - Carey House Brown Rd Shirley 1810 SRL.56 Brown House Brown Rd Shirley 1772 SRL.244 Chase House Brown Rd Shirley c 1949 SRL.245 Chase House Brown Rd Shirley c 1947 SRL.246 Coburn House Brown Rd Shirley c 1947 SRL.247 Longley House Brown Rd Shirley c 1949 SRL.161 Catacunemaug Rd Shirley c 1900 SRL.162 Catacunemaug Rd Shirley c 1870 SRL.164 Catacunemaug Rd Shirley c 1880 SRL.165 Catacunemaug Rd Shirley c 1870 SRL.44 Whitney, James House Center Rd Shirley 1836 SRL.45 Adams House Center Rd Shirley 1755 SRL.46 Longley Homestead Center Rd Shirley 1786 SRL.47 Hartwell, Dr. Benjamin House Center Rd Shirley 1785 19

SRL.48 Broom Shop Center Rd Shirley c 1830 SRL.68 Pound Hill School District #2 Center Rd Shirley 1855 SRL.69 Hartwell, Benjamin Jr. House Center Rd Shirley c 1830 SRL.70 Longley, Edmund House Center Rd Shirley c 1815 SRL.74 Parker, James House Center Rd Shirley 1720 SRL.75 Parker, James Jr. House Center Rd Shirley 1832 SRL.76 Center Rd Shirley c 1850 SRL.77 White, Lura Birthplace Center Rd Shirley r 1775 SRL.78 Marshall, Charles House Center Rd Shirley c 1902 SRL.90 Edgarton, Henry House Center Rd Shirley 1875 SRL.91 Parker, Dr. Augustus G. House Center Rd Shirley c 1830 SRL.92 Priest, R. M. House Center Rd Shirley c 1850 SRL.236 Center Rd Shirley 1930 SRL.248 Buddington House Center Rd Shirley c 1950 SRL.249 Longley, K. House Center Rd Shirley c 1940 SRL.250 Trinity Chapel Center Rd Shirley 1903 SRL.251 Quigley House Center Rd Shirley c 1920 SRL.274 Farrar, John Sr. House Center Rd Shirley c 1925 SRL.277 Historical Society Center Rd Shirley 1983 SRL.278 Simmons House Center Rd Shirley c 1840 SRL.281 7 Center Rd Shirley c 1850 SRL.86 Munson House 8 Center Rd Shirley c 1860 SRL.436 Lawrence, Oliver F. House 9 Center Rd Shirley c 1847 SRL.93 Snell, Frank W. House 11 Center Rd Shirley c 1910 SRL.85 Gardner, Moses T. House 14 Center Rd Shirley c 1850 SRL.437 20 Center Rd Shirley r 1955 SRL.438 21 Center Rd Shirley r 1955 SRL.84 Stone, J. W. House 22 Center Rd Shirley c 1880 SRL.439 23 Center Rd Shirley r 1955 SRL.81 26 Center Rd Shirley 1910 SRL.80 Colburn, R. F. House 28 Center Rd Shirley c 1889 SRL.440 29 Center Rd Shirley c 1890 SRL.79 Longley, William House 32 Center Rd Shirley 1748 SRL.83 33 Center Rd Shirley c 1875 SRL.82 Washburn House 35 Center Rd Shirley c 1800 SRL.234 41 Center Rd Shirley c 1920 SRL.235 45 Center Rd Shirley c 1900 SRL.102 Fire House Chapel St Shirley c 1850 SRL.132 Baptist Church 8 Chapel St Shirley 1853 SRL.135 Livermore House 9 Chapel St Shirley c 1875 SRL.133 Scott, S. B. House 12 Chapel St Shirley c 1880 SRL.136 13 Chapel St Shirley c 1925 SRL.287 16 Chapel St Shirley c 1960 SRL.288 19 Chapel St Shirley c 1875 SRL.289 20 Chapel St Shirley r 1850 SRL.137 21 Chapel St Shirley 1925

SRL.290 23 Chapel St Shirley c 1900 SRL.138 Adams, J. M. House 24 Chapel St Shirley c 1870 SRL.140 27 Chapel St Shirley c 1875 SRL.291 28 Chapel St Shirley c 1890 SRL.292 29 Chapel St Shirley c 1880 SRL.293 30 Chapel St Shirley c 1880 SRL.294 Saint Anthony’s School 33-41 Chapel St Shirley c 1890 SRL.295 34 Chapel St Shirley c 1890 SRL.296 36 Chapel St Shirley c 1890 SRL.297 38 Chapel St Shirley c 1890 SRL.298 40 Chapel St Shirley c 1870 SRL.299 Samson Cordage Works Worker 51 Chapel St Shirley c 1925 Housing SRL.300 52 Chapel St Shirley c 1920 SRL.301 Samson Cordage Works Worker 53 Chapel St Shirley c 1925 Housing SRL.302 54 Chapel St Shirley c 1880 SRL.303 Samson Cordage Works Worker 57 Chapel St Shirley c 1925 Housing SRL.304 Samson Cordage Works Worker 61 Chapel St Shirley c 1925 Housing SRL.146 War Memorial Building Church St Shirley c 1936 SRL.147 School House #8 Church St Shirley 1848 SRL.148 Barrett, Dea. O. House Church St Shirley c 1875 SRL.149 Church St Shirley c 1908 SRL.305 Church St Shirley SRL.306 Church St Shirley c 1870 SRL.307 Church St Shirley r 1955 SRL.308 Church St Shirley r 1955 SRL.59 Patterson, Hezekiah House Clark Rd Shirley c 1760 SRL.60 Longley House Clark Rd Shirley c 1830 SRL.61 Clark Rd Shirley r 1800 SRL.62 Clark Rd Shirley c 1830 SRL.43 Whitney House Common Shirley 1797 SRL.49 Whitney Store Common Shirley c 1800 SRL.50 Ramsdell House Common Shirley c 1860 SRL.51 Ayres, Col. House Common Shirley r 1840 SRL.52 Shirley Town Hall Common Shirley 1848 SRL.53 First Parish Church Common Shirley r 1773 SRL.163 Cottage St Shirley c 1895 SRL.267 Cottage St Shirley c 1895 SRL.268 Cottage St Shirley c 1895 SRL.269 Cottage St Shirley c 1895 SRL.270 Cottage St Shirley c 1895 SRL.120 Long Block Credit Ct Shirley c 1870 SRL.121 Credit Ct Shirley r 1875

SRL.256 Credit Ct Shirley c 1875 SRL.257 Credit Ct Shirley c 1875 SRL.97 Davis Block 10 Davis Rd Shirley 1885 SRL.94 Stimson, Stephen House Davis St Shirley 1776 SRL.95 Davis St Shirley c 1857 SRL.96 Davis St Shirley c 1800 SRL.309 Davis St Shirley c 1925 SRL.310 Davis St Shirley r 1955 SRL.311 Davis St Shirley c 1870 SRL.444 Fort Devens - North Post Sewage Filter Bed Rd Shirley 1942 Pumping Station SRL.154 Holbrook House Fredonian St Shirley c 1830 SRL.126 Fredonian Cotton Factory Worker 14 Fredonian St Shirley c 1860 Housing SRL.259 Fredonian Cotton Factory Worker 16 Fredonian St Shirley c 1850 Housing SRL.260 Fredonian Cotton Factory Worker 18 Fredonian St Shirley c 1850 Housing SRL.261 Fredonian Cotton Factory Worker 20 Fredonian St Shirley c 1850 Housing SRL.262 Fredonian Cotton Factory Worker 22 Fredonian St Shirley c 1850 Housing SRL.263 Fredonian Cotton Factory Worker 24 Fredonian St Shirley c 1850 Housing SRL.125 26 Fredonian St Shirley c 1850 SRL.122 Fredonian Cotton Factory 27-33 Fredonian St Shirley c 1832 SRL.314 30 Fredonian St Shirley c 1890 SRL.123 32 Fredonian St Shirley c 1857 SRL.315 34 Fredonian St Shirley c 1880 SRL.316 35 Fredonian St Shirley c 1900 SRL.119 36 Fredonian St Shirley c 1870 SRL.317 Mulligan, Michael House 37 Fredonian St Shirley c 1860 SRL.253 38 Fredonian St Shirley r 1890 SRL.318 38 Fredonian St Shirley c 1870 SRL.254 40 Fredonian St Shirley r 1890 SRL.319 40 Fredonian St Shirley c 1870 SRL.320 41 Fredonian St Shirley r 1955 SRL.321 Wells, George S. House 43 Fredonian St Shirley c 1890 SRL.255 44 Fredonian St Shirley r 1890 SRL.323 44 Fredonian St Shirley c 1870 SRL.322 Gionet, William House 45 Fredonian St Shirley 1907 SRL.325 48 Fredonian St Shirley c 1900 SRL.326 50 Fredonian St Shirley c 1870 SRL.324 Gionet, Edward E. House 53 Fredonian St Shirley 1901 SRL.327 Bulger, Philias House 54 Fredonian St Shirley c 1902 SRL.328 Gionet, Gervais A. House 56 Fredonian St Shirley 1903

SRL.329 Front St Shirley r 1955 SRL.330 Front St Shirley r 1955 SRL.331 Front St Shirley r 1955 SRL.332 5 Front St Shirley r 1955 SRL.145 Longley, Samuel Store 11 Front St Shirley c 1875 SRL.333 13 Front St Shirley c 1890 SRL.334 15 Front St Shirley r 1955 SRL.144 Longley, Elihu House 17 Front St Shirley c 1830 SRL.143 19 Front St Shirley 1910 SRL.335 21 Front St Shirley c 1960 SRL.336 23 Front St Shirley c 1850 SRL.337 25 Front St Shirley c 1910 SRL.435 27 Front St Shirley c 1870 SRL.142 29 Front St Shirley r 1865 SRL.338 Balch, C. C. House 33 Front St Shirley c 1870 SRL.339 39 Front St Shirley c 1870 SRL.340 41 Front St Shirley c 1870 SRL.341 43 Front St Shirley c 1890 SRL.342 McClellan, William R. - Chapman, C. J. 59 Front St Shirley c 1860 House SRL.343 61 Front St Shirley c 1890 SRL.344 65 Front St Shirley r 1955 SRL.141 Allen, Joseph House 67 Front St Shirley c 1910 SRL.345 69 Front St Shirley c 1950 SRL.346 71 Front St Shirley r 1955 SRL.347 Dodge, Charles E. House 73 Front St Shirley c 1890 SRL.348 75 Front St Shirley c 1980 SRL.349 Gionet, Frank X. House 79 Front St Shirley 1909 SRL.350 Whitaker, Thomas E. House 83 Front St Shirley c 1890 SRL.8 Bennett, David House Garrison Rd Shirley c 1755 SRL.11 Smith, Nathan House Great Rd Shirley c 1800 SRL.12 Morse, Almond Tavern Great Rd Shirley c 1830 SRL.13 Page, Simon House Great Rd Shirley c 1740 SRL.14 Page, Jonas House Great Rd Shirley c 1780 SRL.15 Little - Harlow - Farnsworth House Great Rd Shirley c 1750 SRL.16 Page, John House Great Rd Shirley c 1750 SRL.17 Great Rd Shirley r 1850 SRL.18 Harris - Kilburn House Great Rd Shirley c 1770 SRL.19 Harris - Estabrook House Great Rd Shirley c 1825 SRL.21 Page, Simon House Great Rd Shirley c 1760 SRL.241 Great Rd Shirley 1926 SRL.240 136 Great Rd Shirley 1927 SRL.9 Tarbell, Peter House Groton Rd Shirley 1847 SRL.4 Andrews, Eleazer House 412 Groton Rd Shirley r 1872 SRL.5 Hartwell, Nathaniel House 412D Groton Rd Shirley 1847 SRL.212 Shaker Dwelling Harvard Rd Shirley c 1800

SRL.213 Machine Shop - Industrial School for Harvard Rd Shirley c 1915 Boys SRL.214 Warehouse - Industrial School for Boys Harvard Rd Shirley c 1915 SRL.215 Kitchen and Laundry - Industrial Harvard Rd Shirley 1921 School for Boys SRL.216 Shaker Administration Building Harvard Rd Shirley c 1850 SRL.217 Shaker Ministry Shop Harvard Rd Shirley c 1840 SRL.218 Shaker Building Harvard Rd Shirley c 1800 SRL.219 Shaker Dwelling Harvard Rd Shirley c 1820 SRL.220 MCI Barn Harvard Rd Shirley c 1923 SRL.221 North Family Office Building Harvard Rd Shirley c 1830 SRL.222 Shaker Dormitory Harvard Rd Shirley c 1845 SRL.223 Church Family Building - Bellhouse Harvard Rd Shirley c 1800 SRL.224 Shaker Dormitory Harvard Rd Shirley 1847 SRL.225 Officers House - Industrial School for Harvard Rd Shirley c 1920 Boys SRL.226 Cottage #5 - Industrial School for Boys Harvard Rd Shirley c 1914 SRL.227 Cottage #6 - Infirmary - Industrial Harvard Rd Shirley c 1930 School for Boy SRL.228 Cottage #7 - Industrial School for Boys Harvard Rd Shirley c 1914 SRL.229 Cottage #8 - Industrial School for Boys Harvard Rd Shirley c 1914 SRL.230 Cottage #10 - Industrial School for Harvard Rd Shirley c 1914 Boys SRL.231 Administration Bldg - Industrial School Harvard Rd Shirley c 1916 for Boys SRL.252 North Family Farmhouse Harvard Rd Shirley c 1830 SRL.285 Shaker Ice House Harvard Rd Shirley SRL.286 Shaker Building Harvard Rd Shirley SRL.188 Edgarton, Edward House 2 Harvard Rd Shirley c 1900 SRL.351 6 Harvard Rd Shirley c 1960 SRL.189 Allen, Elmer H. House 10 Harvard Rd Shirley c 1905 SRL.190 12 Harvard Rd Shirley 1853 SRL.352 16 Harvard Rd Shirley c 1970 SRL.353 19 Harvard Rd Shirley c 1890 SRL.191 20 Harvard Rd Shirley c 1840 SRL.193 Dodge - Longley House 24 Harvard Rd Shirley c 1795 SRL.433 26 Harvard Rd Shirley c 1960 SRL.354 28 Harvard Rd Shirley c 1870 SRL.192 22 Harvard St Shirley c 1840 SRL.186 1 Haskell St Shirley c 1855 SRL.184 3 Haskell St Shirley c 1855 SRL.185 4 Haskell St Shirley c 1790 SRL.183 Whitcomb, O. House 5 Haskell St Shirley c 1855 SRL.22 Hazen Rd Shirley r 1830 SRL.23 Pratt - Hopkins House Hazen Rd Shirley r 1763 SRL.65 Dougherty Farm Hazen Rd Shirley r 1763

SRL.66 Longley, William House Hazen Rd Shirley c 1729 SRL.67 Brooks, James Tavern Hazen Rd Shirley c 1730 SRL.239 Hazen Rd Shirley 1930 SRL.24 21 Hazen Rd Shirley c 1860 SRL.25 Harris, Francis Jr. House 22 Hazen Rd Shirley 1799 SRL.238 196 Hazen Rd Shirley c 1925 SRL.73 Holden, Philemon House Holden Rd Shirley c 1750 SRL.54 Maplewood Manor Horse Pond Rd Shirley r 1750 SRL.20 Kittredge Rd Shirley r 1880 SRL.157 Shirley Fire Station Lancaster Rd Shirley 1894 SRL.204 Hazen - Davis Barn Lancaster Rd Shirley c 1850 SRL.205 Hazen, Thomas House Lancaster Rd Shirley 1797 SRL.207 Parker, David House Lancaster Rd Shirley 1824 SRL.208 Sheila-Ann Airport Diner Lancaster Rd Shirley 1931 SRL.187 Gardner, J. Jr. House 1 Lancaster Rd Shirley c 1855 SRL.198 Shirley District #3 Schoolhouse 3 Lancaster Rd Shirley c 1855 SRL.197 First Universalist Church 4 Lancaster Rd Shirley 1870 SRL.199 Sanderson House 5 Lancaster Rd Shirley c 1857 SRL.196 Hazen Memorial Library 6 Lancaster Rd Shirley 1893 SRL.355 8 Lancaster Rd Shirley r 1955 SRL.195 Hastings - Thomas L. Hazen House 10 Lancaster Rd Shirley c 1870 SRL.200 11 Lancaster Rd Shirley c 1900 SRL.356 Balch, George W. House 13 Lancaster Rd Shirley c 1913 SRL.201 17 Lancaster Rd Shirley c 1857 SRL.202 23 Lancaster Rd Shirley c 1875 SRL.357 24 Lancaster Rd Shirley c 1925 SRL.358 26 Lancaster Rd Shirley c 1930 SRL.206 Parker, L. House 27 Lancaster Rd Shirley r 1865 SRL.359 28 Lancaster Rd Shirley SRL.360 30 Lancaster Rd Shirley c 1925 SRL.203 White, Lura School 36 Lancaster Rd Shirley 1937 SRL.159 Edgarton, Charles A. Company Leominster Rd Shirley 1881 SRL.160 Edgarton, C. A. House Leominster Rd Shirley c 1875 SRL.166 Leominster Rd Shirley c 1830 SRL.167 Leominster Rd Shirley c 1895 SRL.169 Leominster Rd Shirley r 1830 SRL.233 Leominster Rd Shirley c 1800 SRL.362 Leominster Rd Shirley r 1955 SRL.363 Leominster Rd Shirley r 1955 SRL.173 Hazen, Thomas House - Hazen’s 12 Leominster Rd Shirley 1820 Tavern SRL.172 Universalist Parsonage 14 Leominster Rd Shirley c 1870 SRL.171 16 Leominster Rd Shirley c 1830 SRL.170 18 Leominster Rd Shirley c 1875 SRL.361 20 Leominster Rd Shirley c 1830 SRL.364 Orthodox Congregational Church 22 Leominster Rd Shirley c 1870

Society House SRL.168 24 Leominster Rd Shirley r 1830 SRL.27 Jenkins, Asa - Edmund House Little Turnpike Shirley c 1830 SRL.30 Little, Wallis Jr. House Little Turnpike Shirley 1823 SRL.31 Little, William House Little Turnpike Shirley c 1796 SRL.10 Longley Rd Shirley 1889 SRL.441 U. S. Army Reserve Military Lovell Rd Shirley 1989 Intelligence School SRL.442 Fort Devens - North Post Sewage MacPherson Rd Shirley 1937 Pumping Station SRL.443 Fort Devens - North Post Sewage MacPherson Rd Shirley 1942 Pumping Station SRL.158 Davis - Ballou Sawmill Main St Shirley c 1875 SRL.370 Main St Shirley r 1955 SRL.156 Brookside, The 3 Main St Shirley c 1900 SRL.155 Brockelman Brothers Drugstore 7 Main St Shirley c 1850 SRL.365 11 Main St Shirley SRL.153 Sawtell House 17 Main St Shirley c 1865 SRL.368 Former Carriage Factory 20 Main St Shirley c 1880 SRL.152 Conant, J. G. House 23 Main St Shirley c 1890 SRL.369 U. S. Post Office - Shirley Main Branch 25 Main St Shirley r 1955 SRL.151 Conant Brothers House 27R Main St Shirley c 1880 SRL.372 27 Main St Shirley c 1970 SRL.150 Longley, O. Building 29 Main St Shirley c 1850 SRL.87 Longley, Israel House 7 Manson Ave Shirley 1847 SRL.88 Hazen, Jacob P. House 9 Manson Ave Shirley c 1856 SRL.89 11 Manson Ave Shirley c 1850 SRL.383 Maple St Shirley c 1960 SRL.434 Maple St Shirley c 1960 SRL.182 4 Maple St Shirley c 1880 SRL.174 Ballou, Gilbert House 7 Maple St Shirley c 1880 SRL.181 Ballou, Gilbert M. House 10 Maple St Shirley c 1880 SRL.175 Longley, Sullivan House 11 Maple St Shirley c 1878 SRL.180 Ballou, Verne House 14 Maple St Shirley c 1890 SRL.384 15 Maple St Shirley SRL.385 18 Maple St Shirley c 1880 SRL.176 19 Maple St Shirley c 1920 SRL.179 McCoy, Herbert House 20 Maple St Shirley c 1915 SRL.386 3 Mill St Shirley c 1870 SRL.387 4 Mill St Shirley c 1900 SRL.129 5 Mill St Shirley c 1875 SRL.130 Sanderson, W. C. House 6 Mill St Shirley c 1870 SRL.131 8 Mill St Shirley c 1889 SRL.134 Holden, Sylvanus House 12 Mill St Shirley c 1870 SRL.128 Lawton, Frederick House 22 Mill St Shirley c 1896 SRL.124 24 Mill St Shirley c 1847

SRL.6 Mulpus Rd Shirley c 1870 SRL.388 2 Nashua St Shirley c 1860 SRL.389 4 Nashua St Shirley c 1860 SRL.390 6 Nashua St Shirley c 1870 SRL.391 8 Nashua St Shirley c 1870 SRL.211 Shaker Dwelling Old Shop Rd Shirley c 1800 SRL.264 Page St Shirley c 1900 SRL.265 Page St Shirley c 1900 SRL.266 Page St Shirley c 1900 SRL.127 5 Page St Shirley c 1900 SRL.392 6 Page St Shirley r 1955 SRL.393 7 Page St Shirley r 1955 SRL.394 10 Page St Shirley r 1955 SRL.395 11 Page St Shirley c 1900 SRL.396 14 Page St Shirley r 1955 SRL.397 15 Page St Shirley c 1900 SRL.398 18 Page St Shirley r 1955 SRL.399 19 Page St Shirley c 1930 SRL.400 20 Page St Shirley SRL.401 24 Page St Shirley SRL.402 25 Page St Shirley c 1890 SRL.403 26 Page St Shirley r 1955 SRL.28 Little, Wallis House Parker Rd Shirley 1812 SRL.29 Dodge, Wilder House Parker Rd Shirley c 1830 SRL.32 Centre School Parker Rd Shirley c 1855 SRL.33 Carlisle, Levi House Parker Rd Shirley 1830 SRL.34 Johnson - Stone House Parker Rd Shirley 1796 SRL.35 Kelsey, Betsy House Parker Rd Shirley 1826 SRL.36 Little, Jenny House Parker Rd Shirley c 1826 SRL.37 Hazen, Herman House Parker Rd Shirley c 1865 SRL.38 Bennet - Lawton House Parker Rd Shirley c 1800 SRL.39 Almy, Warren House Parker Rd Shirley c 1840 SRL.40 Pray House Parker Rd Shirley r 1840 SRL.41 Parker, Leonard Moody House Parker Rd Shirley c 1800 SRL.242 Clark House Parker Rd Shirley 1942 SRL.243 Parker Rd Shirley SRL.282 Center School Parker Rd Shirley 1924 SRL.283 Barn Parker Rd Shirley 1987 SRL.284 Bernard House Barn Parker Rd Shirley c 1850 SRL.58 Patterson Rd Shirley c 1847 SRL.103 Saint Anthony of Padua Church Phoenix St Shirley 1906 SRL.104 Whitney, Rev. Phineas House - Old Phoenix St Shirley 1762 Parsonage SRL.105 Saint Anthony School Phoenix St Shirley c 1890 SRL.106 Snell, A. G. House 15 Phoenix St Shirley c 1850 SRL.430 Samson Cordage Works Worker 16 Phoenix St Shirley c 1920

Housing SRL.107 18-24 Phoenix St Shirley c 1875 SRL.404 21 Phoenix St Shirley c 1900 SRL.405 23 Phoenix St Shirley c 1920 SRL.139 7 Porter St Shirley c 1900 SRL.406 13 Porter St Shirley c 1890 SRL.407 15 Porter St Shirley c 1925 SRL.408 18 Porter St Shirley r 1955 SRL.409 20 Porter St Shirley r 1915 SRL.410 24 Porter St Shirley SRL.108 Phoenix Mills 2-6 Rodman Ave Shirley c 1850 SRL.109 Phoenix Mills Office 2-6 Rodman Ave Shirley 1850 SRL.110 Phoenix Mills - Picker House 2-6 Rodman Ave Shirley c 1875 SRL.111 Phoenix Mills - Engine House 2-6 Rodman Ave Shirley c 1900 SRL.411 9 Rodman Ave Shirley c 1900 SRL.412 10 Rodman Ave Shirley c 1900 SRL.413 11 Rodman Ave Shirley c 1920 SRL.112 Samson Cordage Worker Housing 12 Rodman Ave Shirley c 1900 SRL.414 13 Rodman Ave Shirley c 1920 SRL.415 14 Rodman Ave Shirley c 1920 SRL.416 15 Rodman Ave Shirley r 1955 SRL.417 16 Rodman Ave Shirley c 1920 SRL.113 Samson Cordage Worker Housing 19 Rodman Ave Shirley c 1900 SRL.418 7 Shaker Rd Shirley c 1900 SRL.419 8 Shaker Rd Shirley SRL.114 12 Shaker Rd Shirley c 1875 SRL.115 14 Shaker Rd Shirley 1890 SRL.117 15 Shaker Rd Shirley c 1870 SRL.116 Shaker Dwelling 16 Shaker Rd Shirley c 1750 SRL.118 Marion, Amos House 19 Shaker Rd Shirley c 1900 SRL.420 22 Shaker Rd Shirley c 1850 SRL.421 24 Shaker Rd Shirley r 1955 SRL.422 25 Shaker Rd Shirley c 1880 SRL.177 3 South St Shirley c 1875 SRL.423 3 South St Shirley c 1875 SRL.424 5 South St Shirley c 1875 SRL.271 7 South St Shirley c 1875 SRL.425 7 South St Shirley c 1875 SRL.178 8 South St Shirley c 1875 SRL.272 9 South St Shirley c 1875 SRL.426 9 South St Shirley c 1875 SRL.273 11 South St Shirley c 1875 SRL.427 11 South St Shirley c 1875 SRL.194 Wheeler, Frank House 21 South St Shirley 1906 SRL.428 Wheeler, Frank H. Garage 21 South St Shirley 1906 SRL.1 Spaulding, Hezekiah House Spaulding Rd Shirley 1806

SRL.2 Kezar, Moses House Squanacook Rd Shirley 1766 SRL.431 Samson Cordage Works Worker 3 Tolman St Shirley c 1920 Housing SRL.432 Samson Cordage Works Worker 5 Tolman St Shirley c 1920 Housing SRL.7 Townsend Rd Shirley c 1875 SRL.3 Holden, Asa House 452 Townsend Rd Shirley 1786 SRL.26 Williams, William Jr. House 203 Walker Rd Shirley c 1830 SRL.57 Warren Rd Shirley c 1750 SRL.429 3 Washington St Shirley c 1870 SRL.42 Parsonage Whitney Rd Shirley 1804 SRL.71 Whitney Rd Shirley c 1910 SRL.72 Whitney Rd Shirley 1914 SRL.209 North Family Office - MCI - Shirley Wilde Rd Shirley 1822 Canine Unit SRL.210 Staff Housing - Industrial School for Wilde St Shirley c 1920 Boys

MACRIS Search Results Search Criteria: Town(s): Shirley; Resource Type(s): Building;

Inv. No. Property Name Street Town Year SRL.101 Ayer Rd Shirley c 1800 SRL.366 Going, John - Huse, John - Williams, Emery House 12 Ayer Rd Shirley c 1830 SRL.367 Former Harness Shop 16 Ayer Rd Shirley c 1880 SRL.371 MacElroy, Manzor A. House 26 Ayer Rd Shirley c 1915 SRL.373 28 Ayer Rd Shirley c 1925 SRL.374 Main Street Garage 34 Ayer Rd Shirley 1919 SRL.375 Farrar, Clara House 40 Ayer Rd Shirley 1918 SRL.98 Benjamin House 42 Ayer Rd Shirley 1860 SRL.376 46 Ayer Rd Shirley c 1875 SRL.99 48 Ayer Rd Shirley c 1850 SRL.378 52 Ayer Rd Shirley c 1850 SRL.379 56 Ayer Rd Shirley c 1850 SRL.380 58 Ayer Rd Shirley c 1870 SRL.100 Shirley Schoolhouse 62 Ayer Rd Shirley 1786 SRL.381 Chaplin, Charles House 66 Ayer Rd Shirley c 1862 SRL.382 70 Ayer Rd Shirley c 1869 SRL.63 Benjamin Rd Shirley c 1850 SRL.64 Livermore House Benjamin Rd Shirley c 1770 SRL.280 Farrar, Henry W. - Westover, John House 4 Benjamin Rd Shirley 1921 SRL.279 Farrar, John House 8 Benjamin Rd Shirley c 1926 SRL.237 617 Benjamin Rd Shirley c 1910 SRL.55 Brownson - Carey House Brown Rd Shirley 1810 29

SRL.56 Brown House Brown Rd Shirley 1772 SRL.244 Chase House Brown Rd Shirley c 1949 SRL.245 Chase House Brown Rd Shirley c 1947 SRL.246 Coburn House Brown Rd Shirley c 1947 SRL.247 Longley House Brown Rd Shirley c 1949 SRL.161 Catacunemaug Shirley c 1900 Rd SRL.162 Catacunemaug Shirley c 1870 Rd SRL.164 Catacunemaug Shirley c 1880 Rd SRL.165 Catacunemaug Shirley c 1870 Rd SRL.44 Whitney, James House Center Rd Shirley 1836 SRL.45 Adams House Center Rd Shirley 1755 SRL.46 Longley Homestead Center Rd Shirley 1786 SRL.47 Hartwell, Dr. Benjamin House Center Rd Shirley 1785 SRL.48 Broom Shop Center Rd Shirley c 1830 SRL.68 Pound Hill School District #2 Center Rd Shirley 1855 SRL.69 Hartwell, Benjamin Jr. House Center Rd Shirley c 1830 SRL.70 Longley, Edmund House Center Rd Shirley c 1815 SRL.74 Parker, James House Center Rd Shirley 1720 SRL.75 Parker, James Jr. House Center Rd Shirley 1832 SRL.76 Center Rd Shirley c 1850 SRL.77 White, Lura Birthplace Center Rd Shirley r 1775 SRL.78 Marshall, Charles House Center Rd Shirley c 1902 SRL.90 Edgarton, Henry House Center Rd Shirley 1875 SRL.91 Parker, Dr. Augustus G. House Center Rd Shirley c 1830 SRL.92 Priest, R. M. House Center Rd Shirley c 1850 SRL.236 Center Rd Shirley 1930 SRL.248 Buddington Center Rd Shirley c 1950 House SRL.249 Longley, K. Center Rd Shirley c 1940 House SRL.250 Trinity Chapel Center Rd Shirley 1903 SRL.251 Quigley House Center Rd Shirley c 1920 SRL.274 Farrar, John Sr. House Center Rd Shirley c 1925 SRL.277 Historical Society Center Rd Shirley 1983 SRL.278 Simmons House Center Rd Shirley c 1840 SRL.281 7 Center Rd Shirley c 1850 SRL.86 Munson House 8 Center Rd Shirley c 1860 SRL.436 Lawrence, Oliver F. House 9 Center Rd Shirley c 1847 SRL.93 Snell, Frank W. House 11 Center Rd Shirley c 1910 SRL.85 Gardner, Moses T. House 14 Center Rd Shirley c 1850 SRL.437 20 Center Rd Shirley r 1955 SRL.438 21 Center Rd Shirley r 1955

SRL.84 Stone, J. W. House 22 Center Rd Shirley c 1880 SRL.439 23 Center Rd Shirley r 1955 SRL.81 26 Center Rd Shirley 1910 SRL.80 Colburn, R. F. House 28 Center Rd Shirley c 1889 SRL.440 29 Center Rd Shirley c 1890 SRL.79 Longley, William House 32 Center Rd Shirley 1748 SRL.83 33 Center Rd Shirley c 1875 SRL.82 Washburn House 35 Center Rd Shirley c 1800 SRL.234 41 Center Rd Shirley c 1920 SRL.235 45 Center Rd Shirley c 1900 SRL.102 Fire House Chapel St Shirley c 1850 SRL.132 Baptist Church 8 Chapel St Shirley 1853 SRL.135 Livermore House 9 Chapel St Shirley c 1875 SRL.133 Scott, S. B. House 12 Chapel St Shirley c 1880 SRL.136 13 Chapel St Shirley c 1925 SRL.287 16 Chapel St Shirley c 1960 SRL.288 19 Chapel St Shirley c 1875 SRL.289 20 Chapel St Shirley r 1850 SRL.137 21 Chapel St Shirley 1925 SRL.290 23 Chapel St Shirley c 1900 SRL.138 Adams, J. M. House 24 Chapel St Shirley c 1870 SRL.140 27 Chapel St Shirley c 1875 SRL.291 28 Chapel St Shirley c 1890 SRL.292 29 Chapel St Shirley c 1880 SRL.293 30 Chapel St Shirley c 1880 SRL.294 Saint Anthony’s School 33-41 Chapel St Shirley c 1890 SRL.295 34 Chapel St Shirley c 1890 SRL.296 36 Chapel St Shirley c 1890 SRL.297 38 Chapel St Shirley c 1890 SRL.298 40 Chapel St Shirley c 1870 SRL.299 Samson Cordage Works Worker Housing 51 Chapel St Shirley c 1925 SRL.300 52 Chapel St Shirley c 1920 SRL.301 Samson Cordage Works Worker Housing 53 Chapel St Shirley c 1925 SRL.302 54 Chapel St Shirley c 1880 SRL.303 Samson Cordage Works Worker Housing 57 Chapel St Shirley c 1925 SRL.304 Samson Cordage Works Worker Housing 61 Chapel St Shirley c 1925 SRL.146 War Memorial Building Church St Shirley c 1936 SRL.147 School House #8 Church St Shirley 1848 SRL.148 Barrett, Dea. O. House Church St Shirley c 1875 SRL.149 Church St Shirley c 1908 SRL.305 Church St Shirley SRL.306 Church St Shirley c 1870 SRL.307 Church St Shirley r 1955 SRL.308 Church St Shirley r 1955 SRL.59 Patterson, Hezekiah House Clark Rd Shirley c 1760 SRL.60 Longley House Clark Rd Shirley c 1830

SRL.61 Clark Rd Shirley r 1800 SRL.62 Clark Rd Shirley c 1830 SRL.43 Whitney House Common Shirley 1797 SRL.49 Whitney Store Common Shirley c 1800 SRL.50 Ramsdell House Common Shirley c 1860 SRL.51 Ayres, Col. Common Shirley r 1840 House SRL.52 Shirley Town Common Shirley 1848 Hall SRL.53 First Parish Church Common Shirley r 1773 SRL.163 Cottage St Shirley c 1895 SRL.267 Cottage St Shirley c 1895 SRL.268 Cottage St Shirley c 1895 SRL.269 Cottage St Shirley c 1895 SRL.270 Cottage St Shirley c 1895 SRL.120 Long Block Credit Ct Shirley c 1870 SRL.121 Credit Ct Shirley r 1875 SRL.256 Credit Ct Shirley c 1875 SRL.257 Credit Ct Shirley c 1875 SRL.97 Davis Block 10 Davis Rd Shirley 1885 SRL.94 Stimson, Stephen House Davis St Shirley 1776 SRL.95 Davis St Shirley c 1857 SRL.96 Davis St Shirley c 1800 SRL.309 Davis St Shirley c 1925 SRL.310 Davis St Shirley r 1955 SRL.311 Davis St Shirley c 1870 SRL.444 Fort Devens - North Post Sewage Pumping Station Filter Bed Rd Shirley 1942 SRL.154 Holbrook House Fredonian St Shirley c 1830 SRL.126 Fredonian Cotton Factory Worker Housing 14 Fredonian St Shirley c 1860 SRL.259 Fredonian Cotton Factory Worker Housing 16 Fredonian St Shirley c 1850 SRL.260 Fredonian Cotton Factory Worker Housing 18 Fredonian St Shirley c 1850 SRL.261 Fredonian Cotton Factory Worker Housing 20 Fredonian St Shirley c 1850 SRL.262 Fredonian Cotton Factory Worker Housing 22 Fredonian St Shirley c 1850 SRL.263 Fredonian Cotton Factory Worker Housing 24 Fredonian St Shirley c 1850 SRL.125 26 Fredonian St Shirley c 1850 SRL.122 Fredonian Cotton Factory 27-33 Fredonian Shirley c 1832 St SRL.314 30 Fredonian St Shirley c 1890 SRL.123 32 Fredonian St Shirley c 1857 SRL.315 34 Fredonian St Shirley c 1880 SRL.316 35 Fredonian St Shirley c 1900 SRL.119 36 Fredonian St Shirley c 1870 SRL.317 Mulligan, Michael House 37 Fredonian St Shirley c 1860 SRL.253 38 Fredonian St Shirley r 1890 SRL.318 38 Fredonian St Shirley c 1870 SRL.254 40 Fredonian St Shirley r 1890

SRL.319 40 Fredonian St Shirley c 1870 SRL.320 41 Fredonian St Shirley r 1955 SRL.321 Wells, George S. House 43 Fredonian St Shirley c 1890 SRL.255 44 Fredonian St Shirley r 1890 SRL.323 44 Fredonian St Shirley c 1870 SRL.322 Gionet, William House 45 Fredonian St Shirley 1907 SRL.325 48 Fredonian St Shirley c 1900 SRL.326 50 Fredonian St Shirley c 1870 SRL.324 Gionet, Edward E. House 53 Fredonian St Shirley 1901 SRL.327 Bulger, Philias House 54 Fredonian St Shirley c 1902 SRL.328 Gionet, Gervais A. House 56 Fredonian St Shirley 1903 SRL.329 Front St Shirley r 1955 SRL.330 Front St Shirley r 1955 SRL.331 Front St Shirley r 1955 SRL.332 5 Front St Shirley r 1955 SRL.145 Longley, Samuel Store 11 Front St Shirley c 1875 SRL.333 13 Front St Shirley c 1890 SRL.334 15 Front St Shirley r 1955 SRL.144 Longley, Elihu House 17 Front St Shirley c 1830 SRL.143 19 Front St Shirley 1910 SRL.335 21 Front St Shirley c 1960 SRL.336 23 Front St Shirley c 1850 SRL.337 25 Front St Shirley c 1910 SRL.435 27 Front St Shirley c 1870 SRL.142 29 Front St Shirley r 1865 SRL.338 Balch, C. C. House 33 Front St Shirley c 1870 SRL.339 39 Front St Shirley c 1870 SRL.340 41 Front St Shirley c 1870 SRL.341 43 Front St Shirley c 1890 SRL.342 McClellan, William R. - Chapman, C. J. House 59 Front St Shirley c 1860 SRL.343 61 Front St Shirley c 1890 SRL.344 65 Front St Shirley r 1955 SRL.141 Allen, Joseph House 67 Front St Shirley c 1910 SRL.345 69 Front St Shirley c 1950 SRL.346 71 Front St Shirley r 1955 SRL.347 Dodge, Charles E. House 73 Front St Shirley c 1890 SRL.348 75 Front St Shirley c 1980 SRL.349 Gionet, Frank X. House 79 Front St Shirley 1909 SRL.350 Whitaker, Thomas E. House 83 Front St Shirley c 1890 SRL.8 Bennett, David House Garrison Rd Shirley c 1755 SRL.11 Smith, Nathan House Great Rd Shirley c 1800 SRL.12 Morse, Almond Tavern Great Rd Shirley c 1830 SRL.13 Page, Simon House Great Rd Shirley c 1740 SRL.14 Page, Jonas House Great Rd Shirley c 1780 SRL.15 Little - Harlow - Farnsworth House Great Rd Shirley c 1750 SRL.16 Page, John Great Rd Shirley c 1750

House SRL.17 Great Rd Shirley r 1850 SRL.18 Harris - Kilburn House Great Rd Shirley c 1770 SRL.19 Harris - Estabrook House Great Rd Shirley c 1825 SRL.21 Page, Simon House Great Rd Shirley c 1760 SRL.241 Great Rd Shirley 1926 SRL.240 136 Great Rd Shirley 1927 SRL.9 Tarbell, Peter House Groton Rd Shirley 1847 SRL.4 Andrews, Eleazer House 412 Groton Rd Shirley r 1872 SRL.5 Hartwell, Nathaniel House 412D Groton Rd Shirley 1847 SRL.212 Shaker Dwelling Harvard Rd Shirley c 1800 SRL.213 Machine Shop - Industrial School for Boys Harvard Rd Shirley c 1915 SRL.214 Warehouse - Industrial School for Boys Harvard Rd Shirley c 1915 SRL.215 Kitchen and Laundry - Industrial School for Boys Harvard Rd Shirley 1921 SRL.216 Shaker Administration Building Harvard Rd Shirley c 1850 SRL.217 Shaker Ministry Shop Harvard Rd Shirley c 1840 SRL.218 Shaker Building Harvard Rd Shirley c 1800 SRL.219 Shaker Dwelling Harvard Rd Shirley c 1820 SRL.220 MCI Barn Harvard Rd Shirley c 1923 SRL.221 North Family Office Building Harvard Rd Shirley c 1830 SRL.222 Shaker Dormitory Harvard Rd Shirley c 1845 SRL.223 Church Family Building - Bellhouse Harvard Rd Shirley c 1800 SRL.224 Shaker Dormitory Harvard Rd Shirley 1847 SRL.225 Officers House - Industrial School for Boys Harvard Rd Shirley c 1920 SRL.226 Cottage #5 - Industrial School for Boys Harvard Rd Shirley c 1914 SRL.227 Cottage #6 - Infirmary - Industrial School for Boy Harvard Rd Shirley c 1930 SRL.228 Cottage #7 - Industrial School for Boys Harvard Rd Shirley c 1914 SRL.229 Cottage #8 - Industrial School for Boys Harvard Rd Shirley c 1914 SRL.230 Cottage #10 - Industrial School for Boys Harvard Rd Shirley c 1914 SRL.231 Administration Bldg - Industrial School for Boys Harvard Rd Shirley c 1916 SRL.252 North Family Farmhouse Harvard Rd Shirley c 1830 SRL.285 Shaker Ice Harvard Rd Shirley House SRL.286 Shaker Building Harvard Rd Shirley SRL.188 Edgarton, Edward House 2 Harvard Rd Shirley c 1900 SRL.351 6 Harvard Rd Shirley c 1960 SRL.189 Allen, Elmer H. House 10 Harvard Rd Shirley c 1905 SRL.190 12 Harvard Rd Shirley 1853 SRL.352 16 Harvard Rd Shirley c 1970 SRL.353 19 Harvard Rd Shirley c 1890 SRL.191 20 Harvard Rd Shirley c 1840 SRL.193 Dodge - Longley House 24 Harvard Rd Shirley c 1795 SRL.433 26 Harvard Rd Shirley c 1960 SRL.354 28 Harvard Rd Shirley c 1870 SRL.192 22 Harvard St Shirley c 1840 SRL.186 1 Haskell St Shirley c 1855

SRL.184 3 Haskell St Shirley c 1855 SRL.185 4 Haskell St Shirley c 1790 SRL.183 Whitcomb, O. House 5 Haskell St Shirley c 1855 SRL.22 Hazen Rd Shirley r 1830 SRL.23 Pratt - Hopkins House Hazen Rd Shirley r 1763 SRL.65 Dougherty Farm Hazen Rd Shirley r 1763 SRL.66 Longley, William House Hazen Rd Shirley c 1729 SRL.67 Brooks, James Tavern Hazen Rd Shirley c 1730 SRL.239 Hazen Rd Shirley 1930 SRL.24 21 Hazen Rd Shirley c 1860 SRL.25 Harris, Francis Jr. House 22 Hazen Rd Shirley 1799 SRL.238 196 Hazen Rd Shirley c 1925 SRL.73 Holden, Philemon House Holden Rd Shirley c 1750 SRL.54 Maplewood Horse Pond Rd Shirley r 1750 Manor SRL.20 Kittredge Rd Shirley r 1880 SRL.157 Shirley Fire Station Lancaster Rd Shirley 1894 SRL.204 Hazen - Davis Barn Lancaster Rd Shirley c 1850 SRL.205 Hazen, Thomas House Lancaster Rd Shirley 1797 SRL.207 Parker, David House Lancaster Rd Shirley 1824 SRL.208 Sheila-Ann Airport Diner Lancaster Rd Shirley 1931 SRL.187 Gardner, J. Jr. House 1 Lancaster Rd Shirley c 1855 SRL.198 Shirley District #3 Schoolhouse 3 Lancaster Rd Shirley c 1855 SRL.197 First Universalist Church 4 Lancaster Rd Shirley 1870 SRL.199 Sanderson 5 Lancaster Rd Shirley c 1857 House SRL.196 Hazen Memorial Library 6 Lancaster Rd Shirley 1893 SRL.355 8 Lancaster Rd Shirley r 1955 SRL.195 Hastings - Thomas L. Hazen House 10 Lancaster Rd Shirley c 1870 SRL.200 11 Lancaster Rd Shirley c 1900 SRL.356 Balch, George W. House 13 Lancaster Rd Shirley c 1913 SRL.201 17 Lancaster Rd Shirley c 1857 SRL.202 23 Lancaster Rd Shirley c 1875 SRL.357 24 Lancaster Rd Shirley c 1925 SRL.358 26 Lancaster Rd Shirley c 1930 SRL.206 Parker, L. House 27 Lancaster Rd Shirley r 1865 SRL.359 28 Lancaster Rd Shirley SRL.360 30 Lancaster Rd Shirley c 1925 SRL.203 White, Lura School 36 Lancaster Rd Shirley 1937 SRL.159 Edgarton, Charles A. Company Leominster Rd Shirley 1881 SRL.160 Edgarton, C. A. House Leominster Rd Shirley c 1875 SRL.166 Leominster Rd Shirley c 1830 SRL.167 Leominster Rd Shirley c 1895 SRL.169 Leominster Rd Shirley r 1830 SRL.233 Leominster Rd Shirley c 1800 SRL.362 Leominster Rd Shirley r 1955

SRL.363 Leominster Rd Shirley r 1955 SRL.173 Hazen, Thomas House - Hazen’s Tavern 12 Leominster Rd Shirley 1820 SRL.172 Universalist Parsonage 14 Leominster Rd Shirley c 1870 SRL.171 16 Leominster Rd Shirley c 1830 SRL.170 18 Leominster Rd Shirley c 1875 SRL.361 20 Leominster Rd Shirley c 1830 SRL.364 Orthodox Congregational Church Society House 22 Leominster Rd Shirley c 1870 SRL.168 24 Leominster Rd Shirley r 1830 SRL.27 Jenkins, Asa - Edmund House Little Turnpike Shirley c 1830 SRL.30 Little, Wallis Jr. House Little Turnpike Shirley 1823 SRL.31 Little, William House Little Turnpike Shirley c 1796 SRL.10 Longley Rd Shirley 1889 SRL.441 U. S. Army Reserve Military Intelligence School Lovell Rd Shirley 1989 SRL.442 Fort Devens - North Post Sewage Pumping Station MacPherson Rd Shirley 1937 SRL.443 Fort Devens - North Post Sewage Pumping Station MacPherson Rd Shirley 1942 SRL.158 Davis - Ballou Sawmill Main St Shirley c 1875 SRL.370 Main St Shirley r 1955 SRL.156 Brookside, The 3 Main St Shirley c 1900 SRL.155 Brockelman Brothers Drugstore 7 Main St Shirley c 1850 SRL.365 11 Main St Shirley SRL.153 Sawtell House 17 Main St Shirley c 1865 SRL.368 Former Carriage Factory 20 Main St Shirley c 1880 SRL.152 Conant, J. G. House 23 Main St Shirley c 1890 SRL.369 U. S. Post Office - Shirley Main Branch 25 Main St Shirley r 1955 SRL.151 Conant Brothers House 27R Main St Shirley c 1880 SRL.372 27 Main St Shirley c 1970 SRL.150 Longley, O. Building 29 Main St Shirley c 1850 SRL.87 Longley, Israel House 7 Manson Ave Shirley 1847 SRL.88 Hazen, Jacob P. House 9 Manson Ave Shirley c 1856 SRL.89 11 Manson Ave Shirley c 1850 SRL.383 Maple St Shirley c 1960 SRL.434 Maple St Shirley c 1960 SRL.182 4 Maple St Shirley c 1880 SRL.174 Ballou, Gilbert House 7 Maple St Shirley c 1880 SRL.181 Ballou, Gilbert M. House 10 Maple St Shirley c 1880 SRL.175 Longley, Sullivan House 11 Maple St Shirley c 1878 SRL.180 Ballou, Verne House 14 Maple St Shirley c 1890 SRL.384 15 Maple St Shirley SRL.385 18 Maple St Shirley c 1880 SRL.176 19 Maple St Shirley c 1920 SRL.179 McCoy, Herbert House 20 Maple St Shirley c 1915 SRL.386 3 Mill St Shirley c 1870 SRL.387 4 Mill St Shirley c 1900 SRL.129 5 Mill St Shirley c 1875 SRL.130 Sanderson, W. C. House 6 Mill St Shirley c 1870 SRL.131 8 Mill St Shirley c 1889

SRL.134 Holden, Sylvanus House 12 Mill St Shirley c 1870 SRL.128 Lawton, Frederick House 22 Mill St Shirley c 1896 SRL.124 24 Mill St Shirley c 1847 SRL.6 Mulpus Rd Shirley c 1870 SRL.388 2 Nashua St Shirley c 1860 SRL.389 4 Nashua St Shirley c 1860 SRL.390 6 Nashua St Shirley c 1870 SRL.391 8 Nashua St Shirley c 1870 SRL.211 Shaker Dwelling Old Shop Rd Shirley c 1800 SRL.264 Page St Shirley c 1900 SRL.265 Page St Shirley c 1900 SRL.266 Page St Shirley c 1900 SRL.127 5 Page St Shirley c 1900 SRL.392 6 Page St Shirley r 1955 SRL.393 7 Page St Shirley r 1955 SRL.394 10 Page St Shirley r 1955 SRL.395 11 Page St Shirley c 1900 SRL.396 14 Page St Shirley r 1955 SRL.397 15 Page St Shirley c 1900 SRL.398 18 Page St Shirley r 1955 SRL.399 19 Page St Shirley c 1930 SRL.400 20 Page St Shirley SRL.401 24 Page St Shirley SRL.402 25 Page St Shirley c 1890 SRL.403 26 Page St Shirley r 1955 SRL.28 Little, Wallis House Parker Rd Shirley 1812 SRL.29 Dodge, Wilder House Parker Rd Shirley c 1830 SRL.32 Centre School Parker Rd Shirley c 1855 SRL.33 Carlisle, Levi House Parker Rd Shirley 1830 SRL.34 Johnson - Stone House Parker Rd Shirley 1796 SRL.35 Kelsey, Betsy House Parker Rd Shirley 1826 SRL.36 Little, Jenny House Parker Rd Shirley c 1826 SRL.37 Hazen, Herman House Parker Rd Shirley c 1865 SRL.38 Bennet - Lawton House Parker Rd Shirley c 1800 SRL.39 Almy, Warren House Parker Rd Shirley c 1840 SRL.40 Pray House Parker Rd Shirley r 1840 SRL.41 Parker, Leonard Moody House Parker Rd Shirley c 1800 SRL.242 Clark House Parker Rd Shirley 1942 SRL.243 Parker Rd Shirley SRL.282 Center School Parker Rd Shirley 1924 SRL.283 Barn Parker Rd Shirley 1987 SRL.284 Bernard House Barn Parker Rd Shirley c 1850 SRL.58 Patterson Rd Shirley c 1847 SRL.103 Saint Anthony of Padua Church Phoenix St Shirley 1906 SRL.104 Whitney, Rev. Phineas House - Old Parsonage Phoenix St Shirley 1762 SRL.105 Saint Anthony School Phoenix St Shirley c 1890

SRL.106 Snell, A. G. House 15 Phoenix St Shirley c 1850 SRL.430 Samson Cordage Works Worker Housing 16 Phoenix St Shirley c 1920 SRL.107 18-24 Phoenix St Shirley c 1875 SRL.404 21 Phoenix St Shirley c 1900 SRL.405 23 Phoenix St Shirley c 1920 SRL.139 7 Porter St Shirley c 1900 SRL.406 13 Porter St Shirley c 1890 SRL.407 15 Porter St Shirley c 1925 SRL.408 18 Porter St Shirley r 1955 SRL.409 20 Porter St Shirley r 1915 SRL.410 24 Porter St Shirley SRL.108 Phoenix Mills 2-6 Rodman Ave Shirley c 1850 SRL.109 Phoenix Mills Office 2-6 Rodman Ave Shirley 1850 SRL.110 Phoenix Mills - Picker House 2-6 Rodman Ave Shirley c 1875 SRL.111 Phoenix Mills - Engine House 2-6 Rodman Ave Shirley c 1900 SRL.411 9 Rodman Ave Shirley c 1900 SRL.412 10 Rodman Ave Shirley c 1900 SRL.413 11 Rodman Ave Shirley c 1920 SRL.112 Samson Cordage Worker Housing 12 Rodman Ave Shirley c 1900 SRL.414 13 Rodman Ave Shirley c 1920 SRL.415 14 Rodman Ave Shirley c 1920 SRL.416 15 Rodman Ave Shirley r 1955 SRL.417 16 Rodman Ave Shirley c 1920 SRL.113 Samson Cordage Worker Housing 19 Rodman Ave Shirley c 1900 SRL.418 7 Shaker Rd Shirley c 1900 SRL.419 8 Shaker Rd Shirley SRL.114 12 Shaker Rd Shirley c 1875 SRL.115 14 Shaker Rd Shirley 1890 SRL.117 15 Shaker Rd Shirley c 1870 SRL.116 Shaker Dwelling 16 Shaker Rd Shirley c 1750 SRL.118 Marion, Amos House 19 Shaker Rd Shirley c 1900 SRL.420 22 Shaker Rd Shirley c 1850 SRL.421 24 Shaker Rd Shirley r 1955 SRL.422 25 Shaker Rd Shirley c 1880 SRL.177 3 South St Shirley c 1875 SRL.423 3 South St Shirley c 1875 SRL.424 5 South St Shirley c 1875 SRL.271 7 South St Shirley c 1875 SRL.425 7 South St Shirley c 1875 SRL.178 8 South St Shirley c 1875 SRL.272 9 South St Shirley c 1875 SRL.426 9 South St Shirley c 1875 SRL.273 11 South St Shirley c 1875 SRL.427 11 South St Shirley c 1875 SRL.194 Wheeler, Frank House 21 South St Shirley 1906 SRL.428 Wheeler, Frank H. Garage 21 South St Shirley 1906

SRL.1 Spaulding, Hezekiah House Spaulding Rd Shirley 1806 SRL.2 Kezar, Moses House Squanacook Rd Shirley 1766 SRL.431 Samson Cordage Works Worker Housing 3 Tolman St Shirley c 1920 SRL.432 Samson Cordage Works Worker Housing 5 Tolman St Shirley c 1920 SRL.7 Townsend Rd Shirley c 1875 SRL.3 Holden, Asa House 452 Townsend Shirley 1786 Rd SRL.26 Williams, William Jr. House 203 Walker Rd Shirley c 1830 SRL.57 Warren Rd Shirley c 1750 SRL.429 3 Washington St Shirley c 1870 SRL.42 Parsonage Whitney Rd Shirley 1804 SRL.71 Whitney Rd Shirley c 1910 SRL.72 Whitney Rd Shirley 1914 SRL.209 North Family Office - MCI - Shirley Canine Unit Wilde Rd Shirley 1822 SRL.210 Staff Housing - Industrial School for Boys Wilde St Shirley c 1920

AREAS

MACRIS Search Results Search Criteria: Town(s): Shirley; Resource Type(s): Area;

Inv. No. Property Name Street Town Year SRL.A Shirley Center Historic District Shirley SRL.B Shirley Shaker Village Shirley SRL.C South Shirley Village Shirley SRL.D Phoenix Mills Shirley SRL.E Fredonian Streetscape Shirley SRL.F Credit Court Streetscape Shirley SRL.G Page Shirley Streetscape SRL.H Cottage Streetscape Shirley SRL.I Slab City Shirley Crossing SRL.J Shirley Center Local Historic District Shirley SRL.K Shirley Village Historic District Shirley SRL.L Chapel Streetscape Shirley SRL.M Fort Devens - North Post Sewage Treatment Facility Shirley SRL.N Fredonian Streetscape Shirley SRL.O South Street Streetscape Shirley

STRUCTURES

MACRIS Search Results Search Criteria: Town(s): Shirley; Resource Type(s): Area;

Inv. No. Property Name Street Town Year

SRL.A Shirley Center Historic District Shirley SRL.B Shirley Shaker Village Shirley SRL.C South Shirley Village Shirley SRL.D Phoenix Mills Shirley SRL.E Fredonian Streetscape Shirley SRL.F Credit Court Streetscape Shirley SRL.G Page Streetscape Shirley SRL.H Cottage Streetscape Shirley SRL.I Slab City Crossing Shirley SRL.J Shirley Center Local Historic District Shirley SRL.K Shirley Village Historic District Shirley SRL.L Chapel Streetscape Shirley SRL.M Fort Devens - North Post Sewage Treatment Facility Shirley SRL.N Fredonian Streetscape Shirley SRL.O South Street Streetscape Shirley

OBJECTS

MACRIS Search Results

Search Criteria: Town(s): Shirley; Resource Type(s): Object;

Inv. No. Property Name Street Town Year SRL.902 Civil War Memorial Common Shirley 1891

BURIAL GROUNDS

MACRIS Search Results Search Criteria: Town(s): Shirley; Resource Type(s): Burial Ground;

Inv. No. Property Name Street Town Year SRL.801 Center Brown Rd Shirley 1754 Cemetery 40

SRL.803 Shirley Village Cemetery Harvard Rd Shirley 1849 SRL.802 Saint Anthony Cemetery Shaker Rd Shirley 1907

Services and Facilities ______SECTION 1 - INTRODUCTION

This chapter of the Master Plan presents a general overview of Shirley’s town government, municipal facilities and services. For this chapter, municipal department information was collected. Before presenting an overview of municipal departments in Section 3, Section 2 outlines where the Town gets its revenue and the tax implications for Shirley households. Section 3 lists goals, objectives and recommendations concerning services and facilities. For a clarification, it’s worth mentioning that the 2010 Federal Census figure for Shirley was 7,211 residents. This figure was comprised of 5,755 residents of Shirley and 1,456 inmates housed in the Correctional Facilities located in Shirley. Thus, all population numbers and calculations that relied on population figures used the 7,211 number (when the indicators used household numbers, it did not include the inmate population though). ______SECTION 2 - SHIRLEY’S REVENUE RESOURCES AND TAX IMPLICATIONS

Table SF-1 below depicts Shirley’s Fiscal Year 17 tax rate ($16.52) is lower when compared to its neighbors. It should be noted that Ayer has a split tax rate that is lower for residential but considerably higher for commercial/industrial. Over the past seven years, Shirley’s tax rate has slowly increased each year from $10.15 in FY 08 to the current rate of $16.52 as tax revenue trended downward as a result of the national housing crisis, hurting Shirley’s growth in the residential sector.

Table SF-1: FY 17 Local Tax Rates Community FY2017 Tax Rate Shirley $16.52 $14.39 Residential, $30.64 Ayer Commercial/Industrial/Personal Groton $18.26 Harvard $18.10 Lancaster $19.79 Lunenburg $19.98 Townsend $19.67 Source: Massachusetts Department of Revenue. Tax rate is per $1,000 of assessed valuation

Shirley’s 2016 average single-family home tax bill ($4,525) appears relatively advantageous when compared to Groton ($7,539), Harvard ($9,597) and Lancaster ($5,790, see Table SF-2 below) but it is not quite as low as Lunenburg ($4,039), Ayer ($4,089), and Townsend ($4,450). Shirley’s average single-family home tax bill in the year 2005 was just $2,866. Adjusting for inflation, this represents approximately a 21.5% increase over the last decade. Neighboring towns also experienced some rise in their average single-family home tax bills over the course of the last decade.

Shirley’s 2016 average assessed valuation per household ($274,080) is higher than Townsend ($224,734) and Lunenburg ($256,969 see Table SF-3 below) and lower than Ayer, Groton, and much lower than Harvard ($531,669). The entire central Massachusetts region and eastern regions of the Commonwealth saw a dramatic rise in the average household valuation during the middle part of the last decade which peaked for many communities in 2007, and Shirley is no exception. Shirley’s 42

average assessed valuation per household rose from a low of $191,943 in 2003 to a high of $328,228 in 2007 (an increase of more than 71%). This was a time when values were high throughout the region, development was on the rise, and existing homes were selling for much more than they sold for during the 1990s. In short, the region’s housing stock had never been valued higher. However, since that time values have decreased in Shirley, from 2007 ($328,228 to $274,080), more than a 16.5% decline. However, it should be noted that assessed valuation did increase in 2014 ($251,113) and 2015 ($256.376), the first and consecutive increase since prior to 2007.

Table SF-2: Year 2016 Average Single Family Home Tax Bill Community Average Single Family FY2016 Tax Bill Shirley $4,525 Ayer $4,089 Groton $7,539 Harvard $9,597 Lancaster $5,790 Lunenburg $4,039 Townsend $4,450 Source: Massachusetts Department of Revenue

Table SF-3: Year 2016 Average Assessed Valuation per Household FY2016 Assessed Valuation per Community Household Shirley 274,080 Ayer 281,418 Groton 401,426 Harvard 531,669 Lancaster 296,151 Lunenburg 256,969 Townsend 224,734 Source: Massachusetts Department of Revenue

Table SF-4 that follows indicates that residential property taxes account for 89.74% of the Town’s tax base which is lower than Groton (93.99%), Harvard (95.04%), and Townsend (90.48%); slightly lower than Lunenburg (90.01%); higher than Lancaster ($85,23%); and much higher than Ayer which is astoundingly low at just 46.1%. When looking back at data from FY14 and FY15, there were slight increases (.26% and .35% respectively) in percentage of total tax levy from residential property. Thus, Shirley’s dependence on residential property taxes to fund its municipal government has been slowly increasing. In comparison to other years, Shirley’s residential property reached a high of 90.1% in the year 2006 largely because residential development increased at a faster rate than economic development, similar to trends in neighboring communities. This was considerably higher than 25 years ago. In the year 1990 Shirley derived just 86.15% of taxes from residential property.

Table SF-5 indicates that Shirley receives more non-education State aid per capita than Ayer, Groton, Lancaster, Lunenburg, and Harvard and less than the Town of Townsend. This is clearer when the population of the communities is weighed. Harvard and Shirley received the largest amount of State aid per capita ($204 and $187 per capita respectively), while

Lunenburg and Groton received the smallest amount of State aid per capita ($109 and $77 respectively).

The state distribution formula is partially based on local median household income figures and other measures of wealth. For the compared communities, Harvard and Shirley have a lower median household income figure (thus the high amount of State aid), while Lunenburg and Groton have a higher median household income figure (thus the low amount of State aid). Ayer, Lancaster, and Townsend fall somewhere in the middle of compared communities with a per capita State aid figure of $115, $129 and $160 respectively.

Table SF-4: Year 2016 Local Tax Levies Res. as Communit Residentia Commercia Personal Total Tax CIP as a Industrial % of y l l Property Levy % of Total Total Shirley 8,974,511 317,332 407,833 300,643 10,000,319 89.74% 10.26% Ayer 9,810,403 3,283,305 4,483,660 3,702,286 21,279,654 46.1% 53.9% Groton 27,305,929 1,072,422 255,923 418,920 29,053,194 93.99% 6.01% Harvard 18,550,506 649,096 45,282 274,446 19,519,330 95.04% 4.96% Lancaster 14,017,648 1,250,752 689,768 488,758 16,446,926 85.23% 14.77% Lunenburg 21,174,252 1,270,022 392,082 687,884 23,524,240 90.01% 9.99% Townsend 14,020,734 659,665 356,368 459,695 15,496,462 90.48% 9.52% Source: Department of Revenue

Table SF-5: Year 2015 Gov’t Distributions and Reimbursements General Government Community Distributions and Aid Per Capita Reimbursements Shirley 1,348,426 187.00 Ayer 857,934 115.52 Groton 828,915 77.86 Harvard 1,336,182 204.94 Lancaster 1,046,099 129.87 Lunenburg 1,105,702 109.63 Townsend 1,433,806 160.63 Source: Massachusetts Department of Revenue. Presented figures DO NOT include State education aid

______SECTION 3 - ENTITIES THAT COMPRISE SHIRLEY’S TOWN GOVERNMENT

This section is an overview of the various entities that comprise Shirley’s municipal government. The total municipal budget for Fiscal Year 2015, excluding enterprise and school operations, totaled $5,228,014. The general budget funds the Police, Department of Public Works, Schools, Cemeteries, Debt Services, Council on Aging, Board of Health, Planning, Zoning, Conservation Commission and all administrative functions of the Town. The budget is funded by aid from the 44

Commonwealth of Massachusetts, local receipts from motor vehicle excise tax, court fines, licenses, permits and interest earned on investments, taxation, and revenue generated from solar leases.

BOARDS & COMMITTEES:

Board of Selectmen

The Board of Selectmen is composed of three members serving staggered three year terms. Board of Selectmen is governed by the Town Bylaws and the General Laws of Massachusetts.

The Board of Selectmen has the authority and responsibility to: • Provide general policy direction • Issue administrative orders • Appoint and serve as hiring authority for approximately 20 boards, committees and officials who administer town government • Issue Annual and Special Town Meeting Warrants • Engage and Supervise Town Legal Counsel and approve actions in litigation • Authorize all borrowing and all expenditures, including payroll • Act as the Town Licensing Board, issuing alcohol, common victuallers, class I, II & III and earth removal permits • Publish the Annual Town Report

The Selectmen serve as Chief Executive of the Town of Shirley. As Shirley’s principal elective officers, and in addition to their responsibilities under state and local law, the Board of Selectmen has general supervision over all matters that are not specifically delegated by law or by vote of the Town to some other officer or board. They are the only officers empowered to enter into contracts on behalf of the Town. The Board of Selectmen has the authority and responsibility to provide general policy direction; issue administrative orders; appoint and serve as hiring authority for Town boards, committees, and officials who administer Town government; and issue Annual and Special Town Meeting Warrants.

The Board also supervises Town Legal Counsel and approves actions in litigation. The Town Counsel provides advice and legal documents for various Town officials and reviews contracts and agreements and procures documents for such purposes; advises and assists with personnel issues in the Board of Selectmen, Fire Department, and the Police Department; and handles all litigations regarding the Town. The current Town Counsel was instated during 2012 and completed a transition of pre-existing files from attorneys previously used by the Town.

Board of Assessors

The Assessors are members of the municipal finance team. Their responsibilities include maintaining the property database, valuing and classifying property, committing taxes, granting abatements and exemptions, managing special assessments and betterments, and administering the motor vehicle and trailer excise tax.

The Assessors establish the valuation and classification of property in accordance with standards set by Massachusetts General Laws using policies and procedures that promote good public relations, provide user friendly access to data, maximize resources, and maintain equity, accuracy, and fairness.

Each parcel is identified by a Parcel ID which consists of the map, block and lot numbers and is maintained in a database in the form of a Property Record Card (PRC), or field card. The PRC contains data about the parcel’s value, use, land area, owner name and address, prior sales, and improvements (buildings, yard items, special features).

Tax maps are maintained in GIS format and are annually updated as of each January 1st with new recorded splits, subdivisions, surveys, and data changes. The Town of Shirley is divided into 123 maps that show lot lines, zoning, and land areas only (no building or septic data are shown). Maps are for assessment purposes only and are not valid for legal description or conveyance. Shirley is included in the Mass GIS list of communities that are committed to maintaining standardized L3 parcel maps. Shirley uses the Montachusett Regional Planning Commissions MR Mapper tool to view GIS data layers.

Board of Health

The Shirley Board of Health is a three-member elected board and is also a member of the Nashoba Associated Boards of Health whose office is in Ayer, MA. The Nashoba Associated Boards of Health acts as our agent on many of the following duties: • Health care and disease control • Enforcement of housing codes • Hazardous waste disposal/landfill monitoring • Title V enforcement • Nuisance investigation • Enforcement of State Sanitary Code for food service establishments • Safety and sanitation of pools and beaches

Benjamin Hill Park Committee

Benjamin Hill was a small ski area in the 1960s through 1970s. It had a lodge and eight slopes with rope tows and a T-bar. It was closed in the1970s and the lodge was subsequently destroyed by fire. The property was acquired by the Town of Shirley and beginning in 2000, members of the Benjamin Hill Park Committee worked to turn the area into a family recreational park. Benjamin Hill was established as Benjamin Hill Park and placed under the direction of the Benjamin Hill Park Committee by Town Meeting Vote on October 22, 2001.A gravel walkway was installed in 2013 around the family playing field at Benjamin Hill Park. The pool house was completed in 2007 with donations of volunteer time, materials, and labor from area individuals and businesses. The pool was completely refurbished in 2013, following earlier installation of new stainless steel gutters.

The walkway is 1/5 of a mile long, making it a great exercise option. Conservation trails also run behind the park area. Major enhancements have recently been completed. These include a new storage shed, a covered porch entry on the pool

house, and the Melloon Skating Rink pavilion. In 2015, the old tennis courts were replaced with a newly paved tennis and basketball court area and the Mystical Maze Playground wooden decking was replaced with new composite decking. The Benjamin Hill Park Committee has six members and their activities include overseeing the swimming pool activities as well as ice skating in the Melloon Ice Skating Pavilion.

Center Town Hall Committee

The Shirley Center Town Hall is available for use by organizations and individuals under established terms and in accordance with rules and regulations established by the Center Town Committee and the Town of Shirley for all occupancies of the building and grounds.

Cultural Council

The mission of the Shirley Cultural Council is to promote excellence, access, education and diversity in the arts, humanities and sciences in order to improve the quality of life for Shirley residents and to contribute to the economic vitality of our community. The council is formed by seven members, and awards grants to support arts enrichments in the school and the community. It also allows for Citizens and community businesses to make donations to the Council.

Economic Development Committee

While respecting the environment and Shirley’s unique wetlands, the Economic Development Committee envisions a community where an appropriate balance is achieved between residential and commercial / industrial tax revenues to support quality municipal and education services, moderate property taxes, and increase property values for Shirley residents.

Energy Committee

The goals of the Energy Committee are: • Provide implementable recommendations to the Board of Selectmen and town residents to reduce the use of energy and increase the use of renewable energy; • Explore the potential to increase the use of renewable energy sources within the community and to develop local renewable energy sources promoting energy self-sufficiency; • Consider strategies to improve Shirley’s energy supply security; • Potentially increase revenue streams for the Town of Shirley using green energy sources/technologies. • Maintain a Green Community as established pursuant to M.G.L. Ch. 25A §10). • Enhance the Town’s ability to experience significant economic benefits while reducing the impact on the environment. Finance Committee

The Finance Committee has the charter to represent the citizens of Shirley with regard to the town budget. The committee has eight members, who generally meet on Tuesdays at 7pm at the Shirley Town Offices. The responsibility of the Finance Committee is to act in the best interest of the taxpayer. The Finance Committee is the representative and advisory 47

committee for Town Meeting; the legislative body of government in the Town of Shirley. The committee’s primary responsibility is to present a balanced budget for Annual Town Meeting which provides an efficient use of available funds by maximizing revenue streams and ensuring expenses are quantified. The committee reviews and provides recommendations on all monetary municipal warrant articles. The committee provides information on the financial health, execution of financial processes, and financial efficiency for voters to make educated decisions. Final decision making responsibility rests with elected officials and those who vote at Town Meeting and general elections.

Historical Commission

The goal of the Shirley Historical Commission and the Shirley Center Historic District Commission is to preserve the historic heritage of the town of Shirley and to administer the historic district’s design review by-law.

Moderator

The role of the moderator is to:

• Appointment members of the Shirley Finance Committee, and (jointly with the Shirley Board of Selectmen and the Shirley School Committee) School Committee of the Nashoba Valley Technical High School.

• Moderate all Shirley Town Meetings.

• Approve activities taking place in the Town Meeting venue and in the immediate surrounding area. Examples of such activities are video recording of Town Meetings, and presentation of information to voters in the entry way outside the Town Meeting venue by town-related groups.

• Explain Town Meeting procedures, and provide information on options for dealing with a matter at a Town Meeting in order to accomplish a specific objective.

• Be available to moderate other town-related meetings such as pre-election candidate debates, and public forums on topics of interest to the town.

Personnel Board

The Personnel Board has the following duties and responsibilities with respect to all employees of the Town not covered by a union contract:

• To prepare and administer a Wage and Salary Classification Plan, subject to approval at Town Meeting;

• To establish Personnel Administration Policies and Procedures to assist covered employees and Town officials, governing all questions relating to wages, hours, and conditions of employment not covered by the Wage and Salary Classification Plan;

• To publish and maintain a Manual of Personnel Policies & Procedures for the benefit of Town employees and officials;

• To issue, amend, or revoke administrative rules and regulations for the purpose of giving effect to the provision of all town bylaws and votes of the Town pertaining personnel administration.

• To establish its own rules of procedure and other rules and regulations consistent with statute, Town By-law, or vote of the Town as will enable the Board fully and effectively to perform its duties;

• To perform such other duties as may become desirable or necessary from time to time, in order to assure just and effective personnel administration in the conduct of the Town’s business, provided such other duties are permitted by law to be undertaken by a personnel board.

Recreation Commission

The goal of the Shirley Recreation Commission is to organize activities for Shirley community around Yoga for adults and seniors, as well as Basketball, Swimming and Soccer for youth.

Recycle Committee

The Recycle Committee is an appointed committee that acts in an advisory role to the Board of Health. The committee also oversees Discounted Outdoor compost bins, making it available for $45 (MSRP $199) through a cooperative program of the Shirley and Ayer Recycling Committees.

War Memorial Trustees

The Shirley War Memorial Trustees are elected and appointed in accordance with MGL. Chapter 41, Section 105: Towns which accept gifts or bequests or appropriate money for the purpose of properly commemorating the services and sacrifices of the soldiers, sailors, marines and airmen who have served the country in war or persons who have rendered military service for the Commonwealth in time of war may provide for a board of trustees to have charge and control of the construction of any such memorial, and to have the custody and care thereof after its construction. The War Memorial Building is home to Shirley’s local American Legion post. The upstairs Function Hall is available to rent for special occasions.

LAND USE BOARDS AND COMMITTEES:

Conservation Commission

The roles of the Conservation Commission are:

• Administer and enforce the Massachusetts Wetlands Protection Act and the Shirley Non-Zoning Wetlands Bylaw.

• Help residents and other applicants to understand and comply with wetlands regulations, including assistance in filing for permits under state laws and local bylaws.

• Open space maintenance: develop and carry out management plans, trail walks and environmental talks, inspect parcels, hire and supervise caretaker for Longley Acres, hay harvest and sale, fund raising.

• Open space acquisition: prepare relevant Town Meeting articles, obtain title searches and appraisals, apply for grants, meet with property owners, guide developers required to set aside open space, track status of chapter 61, 61a and 61b parcels and comment on right of first refusal issues when parcels change status. 49

• Administrative services required to support all the other services.

• Respond to requests for comments from other boards (Planning Board, Zoning Board of Appeals, Selectmen, Board of Health and Building Inspector). Participate in committees as required.

• Support for other state regulations: make maps available (flood insurance, rare species habitat, ACEC), review and comment on forest cutting and management plans, answer logging questions from the abutters and the public, comment on MEPA projects.

• Update the Open Space and Recreation Plan.

Planning Board

The Town of Shirley’s Planning Board is an active municipal government entity whose overall goal is to foster the development of the community. The Planning Board assists citizens and community leaders in directing future changes. The Planning Board facilitates the community’s quality of life through housing, economic development, open space and recreation, transportation, and land use. The Planning Board encourages preservation of natural and historic landscapes and important land resources by promoting excellence in site development and design.

The Planning Board also: • reviews projects for compliance with the local zoning bylaw and the goals and objectives of the approved Master Plan • reviews projects for compliance with the general storm water bylaw

Zoning Board of Appeals

The Zoning Board of Appeals (often referred to as the ZBA) acts in a quasi-judicial capacity in the following areas: The issuance of certain special permits, petitions for variances from the requirements of the Shirley Protective Zoning Bylaws, appeals from the acts of the Building Inspector, or from failure of the Building Inspector to act in response to a complaint from a citizen.

The Zoning Board of Appeals also has jurisdiction to act on applications for comprehensive permits for subsidized housing, in which it coordinates review of all other local boards except the Conservation Commission.

The Zoning Board of Appeals has power to receive testimony under oath. Most decisions of the ZBA may be appealed by an aggrieved to the District, Superior, or Land Court.

TOWN DEPARTMENTS:

Accountant

The Town Accountant oversees books, and reviews bills for processing in accordance with state law and budget.

Ambulance

The Shirley Ambulance Service provides Advanced Life Support (ALS-Intermediate). Available 24 hours a day/7 days a week.

Animal Control

The Animal Control Officer handles all animal incidents and is responsible for enforcing animal control laws. The Animal Control Officer may issue violations to pet owners based upon the conduct of the animals.

Assessors

See Board of Assessors above.

Collector

The Town Collector provides the following services:

• Collects real estate, personal property, motor vehicle and trailer excise taxes • Collects sewer usage fees, betterments, septic repair loans, parking violations and trailer park fees. • Prepares Municipal Lien Certificates. • Prepares Tax Taking Liens for unpaid property taxes which includes advertising and recording the lien at the Middlesex South Registry of Deeds. • Prepares Dissolvement Certificates for sewer betterments

Council on Aging

The Council on Aging is chartered to provide a variety of services including health and wellness, socialization, nutrition, safety, arts and crafts and financial protection. All are in support of a senior’s right and ability to age-in-place. The Council is the primary contact point for many of the services offered by the state and regional service groups such as Montachusett Home Care, Nashoba Nursing and Meals-on-Wheels. The Council provides a full range of programs and services including meals, exercise and socialization to all seniors in Shirley.

Department of Public Works

The Department of Public Works is responsible for road and street maintenance, care and maintenance of Town trees, snow and ice removal and maintenance of Town-owned property.

Fire Department

The mission of the Shirley Fire Department is a commitment to excellence in the service to the people in the Shirley community, by protecting the lives and property of the community from emergencies involving fire, medical, hazardous

materials and environmental causes.

Inspection Services

The Inspection Services Department is responsible for administering the General Laws of the Commonwealth of Massachusetts and the Bylaws of the Town of Shirley as they relate to land use and the construction and occupancy of building and structures.

The Department’s goal is to ensure the public health, safety, and welfare of the inhabitants of the Town of Shirley.

Police Department

The mission of the Shirley Police Department is to enhance the quality of life throughout the Town of Shirley by reducing crime through prevention and enforcement, thereby creating a sense of security in the community and eliminating the fear of crime. The department is also in charge of the emergency dispatch services within the jurisdiction of the Town of Shirley.

Sewer Commission

The Sewer Commission deals with issues related to the Town’s sewer system such as: billing, sewer connections permits drain layers’ licenses, grease trap permit information, irrigation meter information, tie cards, connection inspections, trench and road opening permits, sewer extension requests.

Town Administrator

The Town Administrator serves as the Chief Administrative Officer for the Town of Shirley and implements the policy directives of a three-member, elected Board of Selectmen.

Duties and Responsibilities: • Organize, reorganize, consolidate, abolish or establish departments, commissions, boards, and offices under his supervision.

• Appoint, transfer, promote or remove and compensate employees under his jurisdiction in accordance with the General Laws, the Town Manager Act and the Classification Plan.

• Maintain complete records of his office and make reports to the Selectmen when requested.

• Advise and recommend to the Selectmen those needs, policies, programs and actions he deems necessary or expedient.

• Maintain jurisdiction and responsibility for all Town property but the schools.

• Maintain a purchasing function for the procurement of all supplies, materials, and equipment (except education supplies) and books for the libraries.

• With the approval of the Selectmen, prosecute, defend and compromise all litigation (except tax assessments and 52

abatements) to which the Town is a party.

• Evaluate the effectiveness of units reporting to him and take actions necessary to achieve optimum performance levels.

• Within the provisions of the Town Manager Act, make appointments to the: Redevelopment Board, Board of Health, Board of Park Commissioners, Board of Cemetery Commissioners; also appoints the Tree Warden.

• Prepare the Annual Budget for the consideration of the Selectmen.

• Prepare necessary Articles for Town Meeting.

• Assume responsibility for negotiating collective bargaining agreements for labor units under his jurisdiction.

• Evaluate the effectiveness of units reporting to him and take actions necessary to achieve optimum performance levels.

• Make any investigations deemed necessary and perform other such duties consistent with his office.

Town Clerk

The Town Clerk’s Office serves as the central information point for residents and visitors alike. The Town Clerk is the chief election official, recording official, registrar of vital records, public records official, and licensing officer. The Town Clerk oversees the polling place and the conduct of all elections and election-related activity, and records all actions of Town Meetings. The Clerk’s Office maintains the municipal code, the official meeting postings for Town boards/committees/commissions, oaths of office, appointments and resignations of all Town officials. The Clerk’s Office issues state licenses and permits, including marriage licenses, business licenses and renewals, dog licenses, raffle permits and certified requests for public documents. This office responds to inquiries from the public as well as from other departments, boards and committees.

It is the mission of this office to be a reliable provider of information and quality services to the community and its residents, and to work cooperatively and in concert with all departments, boards and committees while complying with state and local statutes.

Treasurer

Services Provided:

• Payroll and employee benefits • Cash management • Ambulance billing

Veterans Services

Veterans Services provides for the needs of veterans and their dependents who qualify for MGL Chapter 115 (Welfare for 53

Veterans), including assistance in preparation of claims for compensation and pensions, medical care, and fuel assistance.

School District

The Towns of Shirley and Ayer regionalized in 2011, creating the Ayer /Shirley Regional School District (ASRSD) serving approximately 1700 students in four schools:

• Lura A. White Elementary School – Pre-K to 5th grade.

• Page Hilltop Elementary School– Pre-K to 5th grade

• Ayer/Shirley Regional Middle School – 6th to 8th grade.

• Ayer/Shirley Regional High School – 9th to 12th grade.

Library

The Hazen Memorial Library’s collections now exceed 40,000 materials. These include, books, DVDs, music CDs, audiobooks on CD, videos (including descriptive videos for people who are visually impaired and closed captioned videos), magazines, foreign language tapes, and large print books. The library provides Internet accessible computers, free wireless Internet and an expert staff to help in all aspects of the library.

The library has a web page www.shirleylibrary.org for around-the-clock computer-based services and fast, easy access to the library catalog, databases, events calendar, and downloadable digital content. The library is fully accessible with everything on one level. Our services for persons with disabilities include an Aladdin Classic Video Magnifier, TTY Line, digital e-books, audiobooks and videos, large print books, books on CD and Magnifying Lenses. The Children’s Room has a story time for babies, toddlers, and preschoolers, events, demonstrations and a summer reading program. The Homework Center is available to students of all ages.

______SECTION 4: SERVICES AND FACILITIES GOALS, OBJECTIVES AND RECOMMENDATIONS

GOAL:

• Provide excellent, cost effective, accessible facilities, services, and programs reflecting values respectful of the demographics and diversity of the Shirley community, which, contribute to a high-quality, safe, civil, healthy, and sustainable community.

OBJECTIVES:

• Explore regionalization of services and consolidation • Revisit the DOR 2008 financial management review

• Establish a master plan implementation committee • Continue to enhance coordination between municipal departments • Continue efforts to coordinate Town and community services to the benefit of Shirley’s residents • Continue to pursue grant opportunities under the MA Green Communities program • Provide training and materials for new board/committee/commission members • Create an organizational flow chart • Expand the Town’s information technology by continuing to utilize MR. Mapper • Develop a Permitting Guidebook

RECOMMENDATIONS:

1. Regionalization of Services and Consolidation: Shirley should continue to explore regionalization opportunities with neighboring towns that have the potential to reduce operating costs. One resource that could further any effort made by the Town is MRPC’s District Local Technical Assistance (DLTA) Program. In late 2016, Shirley submitted a DLTA application for a feasibility study comprised of recommendations to potentially join or not join a regional dispatch center.

The DLTA program, funded by the Commonwealth of Massachusetts, enables MRPC staff to provide technical assistance at no cost to its 22 communities to encourage municipalities to work together to achieve and/or enhance cost-effective service delivery. Over the past nine years, MRPC received funding from the Commonwealth in late fall/early winter. Shortly thereafter, MRPC forwarded a Request for Service Delivery to member communities. Last year, examples of eligible projects categorized as municipal partnerships included but were not limited to:

It should be noted that DLTA funding from the Commonwealth of Massachusetts is not guaranteed each year, and applications must be discussed in a public meeting and signed by the Chair of the Board of Selectmen.

Responsible Municipal Entity: Town Administrator/ Board of Selectmen.

2. Revisit the 2008 Massachusetts Department of Revenue (DOR) Financial Management Review. In November 2008, a Financial Management Review for the Town of Shirley was completed by the Massachusetts Department of Revenue (DOR), Division of Local Services/Technical Assistance Section. The Board of Selectmen made the request in order to identify areas where town operations and performance could be improved. The report consists of recommendations based on site visits by a Division of Local Services (DLS) team from the Technical Assistances Section, Bureau of Accounts, and Bureau of Local Assessment. DOR interviewed and received information from the selectmen, members of the finance and capital planning committees, the town accountant, town collector, town clerk, treasurer, principal assessor, school superintendent and school business manager, as well as other staff members, as available, in each office. The report also indicates that numerous local financial documents were reviewed in order to form the series of recommendations. The Town should revisit this document to see if there are any recommendations that are still relevant that could be implemented to 55

improve municipal finances.

Responsible Municipal Entity: Town Administrator/ Board of Selectmen.

3. Establish a Master Plan Implementation Committee: The Town should establish a Master Plan Implementation Committee whose job it is to make sure that the Plan’s recommendations get implemented. It may be that Shirley’s Planning Board or a sub-committee thereof would be willing to take on this task although many communities form implementation committees that are separate and distinct from the board or committee that prepared the Plan. If this is the case, the Planning Board could assist in forming the Master Plan Implementation Committee, which in turn would meet with the Town’s other municipal entities that have Master Plan implementation responsibilities and work with them to keep implementation on track. It is suggested that the Committee also brief the Board of Selectmen on the Plan’s progress either quarterly or twice a year. Responsible municipal entities would be the Town Administrator and Planning Board in consultation with the Board of Selectmen.

Responsible Municipal Entity: Town Administrator and Planning Board in consultation with the Board of Selectmen

4. Continue to Enhance Coordination between Municipal Departments: Shirley’s Board of Selectmen could arrange a meeting of all municipal boards, commissions and committees to be held on a quarterly basis. Such meetings have the potential to help the various boards coordinate their activities, reduce duplicative efforts, and promote a team-oriented approach to town government. Such meetings would be especially important during the annual budgeting process, and it is suggested that the Board of Selectmen involve the Finance Committee during the quarterly meeting where municipal department operating budgets are discussed. The responsible municipal entity for this task is the Board of Selectmen.

On the same track, regular department head meetings should continue to be held by the Town Administrator. Matters concerning resources, budgeting, personnel and others issues as needed should be on the agenda for these meetings. Moreover, all boards and staff involved with permitting of land development should attend this meeting regularly concerning planning and development issues.

Responsible Municipal Entity: Town Administrator/ Board of Selectmen.

5. Continue Efforts to Coordinate Town and Community Services to the Benefit of Shirley’s Residents: Shirley has utilized resources to promote two-way communication between citizens and town government, including its website and Facebook. Such an initiative involves all municipal departments in an effort to share important information with citizens such as: upcoming board meetings, Town Meeting information including budget proposals and warrant articles, departmental hours of operation and contact information, availability of municipal facilities for public use, tax information, bylaws and regulations, municipal initiatives, community events and opportunities for citizen participation (volunteer opportunities, board vacancies, etc.).

The Town should also create opportunities for citizens to provide feedback to municipal officials by occasionally polling them on their preferences. In addition to the town website and Facebook, this attempt to create two-way communication between citizens and town government could also include a combination of tools, including: periodic newsletters, voluntary e-mail notifications, announcements at public meetings and events, signage in prominent public places, annual Town Meeting mailer, opinion surveys (both paper and digital), open houses, public forums and other opportunities for two-way

communication not yet considered. The responsible municipal entities include the Board of Selectmen in conjunction with all of Shirley’s municipal departments and boards/commissions/committees.

Responsible Municipal Entity: Board of Selectmen in conjunction with all of Shirley’s municipal departments and boards/commissions/committees.

6. Continue to Pursue Grant Opportunities under the MA Green Communities Program: Shirley has been designated as a Green Community under the State’s Green Communities Program. As part of this effort, the Town prepared an Energy Reduction Plan and is eligible to apply for MA Green Communities Program grants of up to $250,000 covering the action items contained in the plan. Applications are due on an annual basis. Responsible municipal entities: The Energy Committee working with other Town departments.

Responsible Municipal Entity: The Energy Committee working with other Town departments.

7. Training and Materials for New Board/Committee/Commission Members: Each Board, Committee and Commission in Shirley’s Town Government should prepare a handbook that details their policies and procedures for new members and then offer a board-sponsored training session to bring new members up to speed. Further, each entity should identify training opportunities for its new members. The Citizen Planner Training Collaborative (CPTC) offers annual training for new and returning Planning Board and Zoning Board members, while the Massachusetts Municipal Association also offers a wide variety of training opportunities for new Selectmen and other municipal officials. The Massachusetts Association of Conservation Commissions also offers training for new Conservation Commission members.

Having a policy/procedure guidebook and offering training opportunities will help the Town achieve some continuity for its various boards/committees/commissions. New members will have a better understanding of their roles and responsibilities if they know the policies and procedures in place and take advantage of relevant training opportunities. Additionally, the Town should provide an orientation session for all newly appointed board and committee members, using the existing Board and Committee handbook as a guide. Responsible municipal entities: All citizen-staffed boards, committees and commissions.

Responsible Municipal Entity: All citizen-staffed boards, committees and commissions.

8. Organizational Flow Chart: The Town could prepare an organizational flow chart that depicts all municipal departments, boards, commissions, committees and ad-hoc committees and outline which entity established them and which entity they report to. Responsible municipal entities: Town Administrator in conjunction with the Board of Selectmen.

Responsible Municipal Entity: Town Administrator in conjunction with the Board of Selectmen.

9. Expand the Town’s Information Technology by Continuing to Utilize MR. Mapper: The Montachusett Regional Planning Commission (MRPC) markets a mapping and data service known as MRMapper which can be customized to fit the needs of any municipal department. Its applications are limited only by what data exists or could exist digitally. MRMapper can allow users to access, view, query, edit, export and share data related to the Montachusett Region and your community or area of interest, allowing users to print maps as well as standardize and streamline processing techniques and workflow scenarios in order to focus on specific tasks to efficiently solve recurring problems, evaluate common issues,

update information and produce reports. The Town should continue to utilize MRMapper and contact MRPC with any questions or to request a training session, perhaps at a municipal department head’s meeting.

Responsible Municipal Entity: Town Administrator.

10. Develop a “Permitting Guidebook” summarizing for businesses, developers, residents, and the general public the permitting process necessary to complete any particular development project in Shirley. The Permitting Guidebook should include concise information and sources of additional information such as contacts, regulations and forms. The Guidebook should be available in hardcopy format as well as through the Town website and should include simplified permitting flowcharts and checklists to help applicants with understand the complex development and permitting process. The Town of Shirley was awarded MRPC staff time under MRPC’s District Local Technical Assistance (DLTA) program funded by the Commonwealth of Massachusetts. Work on the project is scheduled to commence spring 2017 and be completed no later than December 2017.

Responsible Municipal Entity: Town Administrator/ Board of Selectmen.

Economic Development ______SECTION 1 - INTRODUCTION

This Economic Development chapter includes an inventory and analysis of economic data, town goals and objectives, and recommendations to identify policies and strategies for the expansion or stabilization of the local economic base and the promotion of employment opportunities. In July 2015, the Town of Shirley submitted a request for District Local Technical Assistance (DLTA) from the Montachusett Regional Planning Commission (MRPC) to update a previous version of the Economic Development evaluation completed by MRPC in 2010. Both versions were funded through the Massachusetts Department of Housing and Community Development (DHCD) at no cost to the Town. For formatting purposes and to coordinate the flow of this evaluation with the Master Plan in its entirety, not all data within the 2010 document is listed in this update.

______SECTION 2 - ASSESSMENT OF SHIRLEY’S CURRENT ECONOMIC BASE

SHIRLEY’S LABOR FORCE

As seen in Table E-1 below, the number of employed Shirley residents increased from the year 2005 (3,415 persons employed) until the economic recession in 2009 (3,473 persons employed). However, since 2009, employment then decreased to a low of 2,621 persons employed in the year 2011 – more than a 24.5% decrease. Conversely, Shirley’s local unemployment rate increased from 4.5% in 2007 to a high of 8.3% by the year 2010; Shirley’s unemployment rate has been decreasing since 2010 to about 4.2% in 2016. Information contained in Table E-1 does not include the MCI Shirley prison population.

Of course, Shirley’s unemployment rate is closely tied to that of the Commonwealth and the nation as a whole, both of which saw similar increases in unemployment. However, it should be noted that Shirley’s unemployment rate has been consistently higher than that of the Commonwealth, suggesting that Shirley residents are more prone to layoffs than residents of other communities when the economy declines. Over the last few years, there has been slow improvement in the national and state unemployment rates. While the economy continues to improve, higher education and vocational training in Shirley should be a priority.

Table E-1: Shirley Labor Force, Employment Numbers and Unemployment Rate over Time versus the Unemployment Rate for the Commonwealth Labor Unemployment Commonwealth Year Employed Unemployed Force Rate Unemployment Rate 2016 2,832 2,712 120 4.2% 3.7%

2015 2,975 2,818 157 5.3 % 4.9%

2014 2930 2738 192 6.6% 5.8%

2013 2891 2669 222 7.7% 6.7%

2012 2894 2665 229 7.9% 6.7%

2011 2847 2621 226 7.9% 7.2%

2010 2853 2582 271 9.5% 8.3%

2009 3779 3473 306 8.1% 8.2%

2008 3777 3575 202 5.3% 5.3%

2007 3703 3526 177 4.8% 4.5%

2006 3610 3431 179 5% 4.8%

2005 3581 3415 166 4.6% 4.8%

Source: MA Department of Labor and Workforce Development

WHERE SHIRLEY RESIDENTS WORK

According to the 2015 American Community Survey, the numbers in Table E-2 indicate that roughly 525 persons, or approximately 19.3%, of Shirley’s employed people worked in Town during the year 2015, while roughly 2,194 people, or 82.77%, worked out of Town. This is comparable to Ayer, Lunenburg, and Westminster. The Town of Harvard had the highest percentage of residents working in their municipality at 23.9%, followed by Groton (23.5%). Information contained in Table E-2 does not include the MCI Shirley prison population.

Table E-2: Location of Work (In-Out Metro Statistical Area) Worked Worked in % Worked in % Worked Municipality Total Workers Outside Town Town Outside Town Town Shirley 2,719 525 19.3 2,194 80.7 Ayer 4,020 724 18.0 3,296 82.0 Groton 5,522 1298 23.5 4,224 76.5 Harvard 2,531 605 23.9 1,926 76.1 Lancaster 3,752 495 13.2 3,257 86.8 Lunenburg 5,850 1106 18.9 4,744 81.1 Westminster 4,124 779 18.9 3,345 81.1 Source: 2015 American Community Survey

MEASURES OF WEALTH

There are measures of wealth that reflect the health of the local economy by describing the incomes of local residents: per capita, median household and median family incomes, as well as the percent of people for whom poverty status was determined. Per capita income is equal to the total incomes generated by a population divided by the number of persons in that area. Communities with higher number of persons per household or smaller household incomes would likely have smaller per capita incomes. The per capita income for the Commonwealth of Massachusetts was $36,895, while that of Shirley was $27,775, almost 25% lower than the Commonwealth. In addition, Shirley’s per capita is the lowest of its neighboring communities followed by Lancaster. MRPC contacted the U.S. Census Bureau’s Boston office to find out if prison population is included in a community’s per capita income calculation. MRPC learned that in fact the Shirley MCI prison population, located within the Town’s boundaries, is indeed included in this calculation. Inclusion of the group quarters (i.e. prison) population contained within both the Towns of Shirley and Lancaster are a likely factor as to why Shirley and Lancaster have lower per capital income levels than the surrounding communities.

Another measure of wealth in a community is its median income, which is based on the type of household. In Table E-3, family incomes are differentiated from other household incomes. For example, a single student living alone is considered a household but not a family. Median Household Income and Median Family Income do not include the prison population. According to the American Community Survey 2015 Estimates, Shirley’s median household income and median family income are both less than that of neighboring communities, and lower than that of the Commonwealth. Also, there are more people living below the poverty line in Shirley (12.3%) than in neighboring communities and the Commonwealth (11.6%).

There are some ways in which economic development efforts can support these goals. They include attracting and retaining businesses with well-paying jobs; stabilizing residential property tax rates; encouraging local entrepreneurship; and providing social services, such as subsidized daycare and pre-schools, to support single-parent families and households with two working parents.

Table E-3: Measures of Wealth, Shirley and Neighboring Communities Per Capita Median Household Median Family % People Living Community Income Income Income Below Poverty Shirley $27,775 $67,896 $79,708 12.3%

Ayer $39,355 $74,659 $92,399 12.0%

Groton $51,334 $116,642 $135,444 3.2%

Harvard $49,575 $126,061 $140,365 8.2%

Lancaster $32,899 $96,813 $99,207 9.2%

Lunenburg $38,443 $80,572 $101,250 9.2%

Westminster $36,956 $88,902 $98,008 3.4%

Massachusetts $36,895 $68,563 $87,085 11.6%

Source: American Community Survey 2015 Estimates

THE NUMBER AND TYPES OF JOBS OF SHIRLEY RESIDENTS

The Massachusetts Division of Unemployment Assistance (DUA) is the entity in charge of tracking the changes taking place in the various sectors of the economy at both the Commonwealth and local levels. Table E-4 below presents the changes that took place in Shirley’s local economy from 2009 to 2015. Employment increased, gaining 672 workers, or 31.5% of the employment base in Shirley – this includes all workers, not just Shirley residents. Despite the largest loss that occurred during the height of the economic recession between 2008 and 2009, there were no losses in average employment, total wages, or average weekly wages between 2009 and 2015.

Total wages increased 48% after the recession ended, with the average weekly wage increasing by 12.3%. With a 31.5% increase in employment rates, more disposable income became available to spend locally and spread more dollars throughout the community.

Table E-4: Employment and Wages of Shirley Residents 2009 2010 2011 2012 2013 2014 2015 Change Total Wages (Million $) $119 $132 $143 $150 $160 $169 $176 $57 48%

Average Employment 2,127 2,385 2,536 2,559 2,663 2,789 2,799 672 31.5%

Average Weekly Wage $1,077 $1,064 $1,082 $1,130 $1,153 $1,166 $1,212 $135 12.3%

Source: Massachusetts Division of Unemployment Assistance 62

Table E-5 provides information on the type of jobs found among Shirley residents. The largest number of jobs is found in manufacturing, with 392 jobs, or 14% of all jobs held among Shirley residents during 2014. Other jobs include trade, transportation and utilities (370 jobs) and education and health services (355 jobs) followed behind by construction (232 jobs) and professional and business services (138 jobs). Trade, transportation, and utilities made an impressive 211% increase in jobs by 2014. The Town could benefit from expanding their financial activities industry which only provides 1.5% of all jobs. Over the six-year period, no jobs were lost in any industry, which reflects good economic growth.

Table E-5: Shirley Workforce by Sector 2009 2010 2011 2012 2013 2014 Change Construction 145 138 212 216 213 232 60%

Manufacturing 311 316 367 375 372 392 26%

Trade, Transportation, and Utilities 119 272 311 314 334 370 211%

Financial Activities 42 39 41 40 38 43 2.4%

Professional and Business Services 106 146 120 130 151 138 30.2%

Education and Health Services 263 321 334 322 322 355 35%

Leisure and Hospitality 79 77 93 99 100 111 40.5%

Other Services 22 24 35 38 26 26 18.2%

*Total All Industries 2,127 2,385 2,536 2,559 2,663 2,789 31.1%

Source: Massachusetts Division of Unemployment Assistance

Table E-6 allows for a comparison of the number of jobs in neighboring towns. The Table also provides 2014 employment and wages to compare Shirley with neighboring communities. The Table indicates that Shirley has fewer establishments than all other towns used for comparison. About $169 million was earned in wages by Shirley residents in 2014, which most closely resembles Groton’s total income of $165 Million. These wages are low in comparison to Ayer and Harvard which earned $233 million and $289 million, respectively. Shirley also has a lower number of employees than communities with higher total wages as well. Shirley, however, has better total wages than Lancaster at $83 million and Lunenburg at $88 million. The weekly wage in Shirley ($1,166), interestingly, falls right behind Harvard, which stands at $1,378.

Table E-6: Employment and Wages—Year 2014 Comparison Shirley Ayer Groton Harvard Lancaster Westminster Lunenburg Total Wages (Million $) $169 $233 $165 $289 $83 $135 $88

Average Employment 2,789 4,512 3,447 4,032 2,012 2,511 2,139

Average Weekly Wage 1,166 992 923 1,378 790 1,033 792

Source: Massachusetts Division of Unemployment Assistance 63

The following illustration shows the seven companies based in Town of Shirley that are part of the list of businesses/establishments included within the largest 200 employers in the North Central WIA (Workforce Investment Area):

Name Location # of Employees (range)

MCI Shirley Complex Harvard Rd Shirley 500-999

Bemis Associates Inc Ayer Rd Shirley 100-249

Bemis Associates Inc Bemis Way Shirley 100-249

Shirley Middle School Hospital Rd Shirley 100-249

Thermofab Walker Rd Shirley 100-249

Lura A White School Lancaster Rd Shirley 50-99

Shaker Rd # Nashoba Nursing Svc Shirley 50-99 D225

Source: Massachusetts Labor and Workforce Development

EDUCATION

As shown in the following table, residents with a high school diploma, but no higher education, represent the largest segment of the Shirley population in terms of educational attainment – this is higher than the neighboring communities and the Commonwealth. The second largest group (19.9%) has some college education, followed by residents with a bachelor’s degree (17.1%). However, information contained in Table E-7 includes the MCI Shirley prison population.

The Commonwealth percentages reveal how the population in Shirley compares to the overall state population in terms of educational attainment. As in Shirley, the largest segment contains those with a high school diploma, but no higher education (25.4%). However, the second largest group is those with a bachelor’s degree (22.8%), followed by those with a graduate degree (17.7%).

The Commonwealth data contains higher numbers in the groups at the upper echelon of the educational attainment spectrum than the Shirley data. This could be due in part because more Shirley residents might be attending a high school level trade school (Montachusett Technical Vocational High School is located in nearby Fitchburg) or Mount Wachusett Community College.

There are numerous public school districts and private schools within the region educating young persons from pre- kindergarten through high school. The area also has charter schools. As previously indicated, Montachusett Technical Vocational High School is located in Fitchburg, offering a trade-school curriculum at the high school level. Located in Gardner, Mount Wachusett Community College (MWCC) offers two-year programs, while Fitchburg State University 64

offers four-year programs. In addition, there are many private-sector educational operators offering training courses. The North Central Massachusetts Workforce Investment Board promotes the economic and social welfare of the region through education, employment, and training programs that increase employability of young people and adults.

Table E-7: Educational Attainment - Population 25 Years and Over Amount of Shirley Ayer Groton Harvard Lancaster Westminster Lunenburg Commonwealth Schooling No High School 13.7% 5.4% 1.1% 3.4% 10.0% 6.2% 7.7% 10.2% Diploma

High School 38.0% 30.0% 13.8% 15.8% 24.9% 19.7% 27.4% 25.4% Diploma

Some College, 19.9% 20.4% 12.4% 14.0% 19.4% 18.5% 18.5% 16.2% No Degree

Associate’s 4.5 % 7.9% 6.0% 3.5% 10.9% 12.9% 11.2% 7.7% Degree

Bachelor’s 17.1% 21.0% 36.9% 29.9% 21.8% 27.9% 23.0% 22.8% Degree

Graduate or 6.7% 15.3% 29.7% 33.5% 13.0% 14.8% 12.3% 17.7% Prof. Degree

Source: American Community Survey 2015 Estimates

ECONOMIC SECTOR CONTRIBUTION TO LOCAL TAX BASE

In FY15, the Town of Shirley levied a total of $9,858,905 in taxes, based on a local tax rate of $17.31. Based on Massachusetts Department of Revenue (DOR) data, Shirley homeowners accounted for approximately 89.42% of the total FY15 tax base. Commercial and industrial sectors combined accounted for 10.58% of the tax base or $723,619. The next two tables look at how Shirley compares to neighboring and compatible communities in terms of the commercial and industrial tax base.

Table E-8 shows that the Town of Shirley’s commercial development is the second lowest percentage at 3.34%, and the lowest ($329,418), in terms of tax dollars levied when compared with neighboring/compatible communities. Shirley’s commercial tax base reflects the Town’s limited commercial development, with most businesses serving local residents.

Table E-8: Commercial Tax Base Comparison FY 2015 % of Commercial Assessed Total Taxes Community Tax Total Assessed Total Tax Taxes Levied Valuation Levied Rate Valuation Levy

Shirley $17.31 $329,418 $19,030,484 $9,858,905 $569,549,658 3.34%

Ayer $29.97 $3,149,086 $105,074,600 $20,572,763 $1,015,810,400 15.31%

Groton $18.27 $1,073,343 $58,748,938 $27,971,460 $1,531,004,928 3.84%

Harvard $17.79 $616,688 $34,664,896 $18,912,431 $1,063,093,393 3.26%

Lancaster $18.76 $1,175,375 $62,653,269 $15,542,904 $828,513,035 7.56%

Lunenburg $18.32 $1,197,600 $65,371,177 $21,003,907 $1,146,501,536 5.70%

Westminster $18.95 $1,060,617 $55,969,210 $15,787,240 $833,099,735 6.72%

Source: Massachusetts Department of Revenue, Division of Local Services

Table E-9 indicates that Shirley is similar to most of the neighboring/surrounding communities in terms of industrial tax base. The exception is the Town of Ayer due to the Devens influence and also to the fact that Ayer has built its own commercial and industrial tax base by actively working to attract industry. It is interesting to note that Shirley’s tax rate is the lowest of the surrounding communities, even with the rate increase to $17.31 during FY15. This lower tax rate can be viewed as something to help market the Town to potential businesses.

Table E-9: Industrial Tax Base Comparison % of FY 2015 Industrial Assessed Total Taxes Total Community Tax Total Assessed Taxes Levied Valuation Levied Tax Rate Valuation Levy

Shirley $17.31 $394,201 $22,773,000 $9,858,905 $569,549,658 4.00%

Ayer $29.97 $4,287,119 $143,047,000 $20,572,763 $1,015,810,400 20.84%

Groton $18.27 $242,699 $13,284,000 $27,971,460 $1,531,004,928 0.87%

Harvard $17.79 $43,105 $2,423,000 $18,912,431 $1,063,093,393 0.23%

Lancaster $18.76 $661,479 $35,260,056 $15,542,904 $828,513,035 4.26%

Lunenburg $18.32 $369,241 $20,155,100 $21,003,907 $1,146,501,536 1.76%

Westminster $18.95 $956,696 $50,485,300 $15,787,240 $833,099,735 6.06%

Source: Massachusetts Department of Revenue, Division of Local Services 66

______SECTION 3: ECONOMIC DEVELOPMENT GOALS, OBJECTIVES AND RECOMMENDATIONS

GOAL:

1. Promote economic development that is consistent with the Town’s desired character.

OBJECTIVES:

1. Establish an Economic Development Industrial Commission (EDIC), or similar entity, charged with implementing economic development policy. 2. Establish a Development Review Team to provide one-stop review of key development projects. 3. Retain current businesses. 4. Prepare a market study to identify retail businesses likely to succeed in Shirley. 5. Develop a marketing brand for the community. 6. Place economic development information on the Town’s website. 7. Consider recreation and history and culture as economic development activities. 8. Assess areas zoned commercial, industrial or mixed-use for their development potential. 9. Use Tax Increment Financing (TIF) and other incentive programs to stimulate investment in desired development areas. 10. Aggressively seek funding for road improvements. 11. Consider any potential new zoning carefully, and conduct changes incrementally, with extensive outreach to ensure public involvement.

RECOMMENDATIONS:

1. Establish an Economic Development Industrial Commission (EDIC) or similar entity charged with implementing economic development policy. The Town already has an Economic Development Committee, but if a more formalized approach is desired, an EDIC could be considered. An EDIC established under MGL Chapter 121C has the power to:

• Acquire, improve, sell, or lease real estate.

• Borrow money or bonds in its own name.

• Apply for and expend grants.

• Hire staff or outside consultants.

Among the various entities that may be created under M.G.L. to facilitate development, EDICs have the strongest development powers. However, in contrast to the broader scope of projects allowed under c.121B, EDICs are restricted to industrial and manufacturing development. EDICs are authorized to:

• undertake economic development project planning and implementation. 67

• acquire land through eminent domain.

• develop, sell, convey, lease, mortgage, transfer or exchange property.

• borrow and invest money and issue corporate as well as revenue bonds.

• receive grants, loans or advances from federal/state/local government.

• pledge the credit of the municipality.

• finance pollution control facilities.

• manage projects.

• act as an Urban Redevelopment Corporation under Chapter 121A.

An EDIC could be used to assemble parcels in key areas, develop them into planned development projects, such as an industrial park, providing serviced, pad-ready, pre-permitted sites for development.

Responsible Municipal Entity: Board of Selectmen with assistance from the Planning Board.

2. Establish a Development Review Team to provide one-stop staff review of key development projects. Developers appreciate that you value their time and want to make their project permitting go more smoothly and expeditiously. The Town Administrator should be the point of contact for businesses seeking assistance. MRPC can provide the Town of Shirley with a number of existing communities across the Commonwealth that have already adopted a Development Review Bylaw to use as examples.

Responsible Municipal Entity: Board of Selectmen.

3. Retain current businesses. Develop an ambassador program. Conduct visits. Meet on a regular basis, establish a roundtable and solicit their ideas. Help local businesses pursue training grants. Pursue grant funds for loan pools and commercial improvements.

Responsible Municipal Entity: Board of Selectmen.

4. Prepare a market study to identify retail businesses likely to succeed in Shirley. Some research required for a market study has already been completed as part of this project. MRPC has already obtained a market profile for the Town of Shirley, utilizing ESRI Business Analyst in the 2010 Economic Development Element. A retail market study draws on information from a variety of sources, mainly the US Economic Census, to determine the amount of purchasing demand in the study area for various types of retail businesses. It compares this to sales standards for typical business to determine whether the demand is being met locally, or if there is unmet demand. This unmet demand, or “leakage,” indicates the potential for additional retail establishments in the trade area. A current market study would provide a tool for the town to target its business development efforts.

Responsible Municipal Entity: Board of Selectmen.

5. Develop a marketing brand for the community. Establishing a presence at regional trade shows such as the 68

annual tradeshow in Fitchburg would make clear that Shirley is serious about pursuing new business. Work with local banks to identify prospective new businesses.

Responsible Municipal Entity: Board of Selectmen.

6. Place economic development information on the Town’s website. The home page of the Town’s website should contain a prominent link to this information which should include the following areas: top employers; tax incentive policy; available financial assistance; who to contact; success stories (e.g. Phoenix Park); economic, demographic, labor and education; transportation; utilities and infrastructure; market intelligence; and current and upcoming projects. This is the easiest and least costly way to market the community. Most developers or business owners who are searching for information about Shirley will look here first. Because it represents the community, and “you only get one first impression,” it should be of high quality. Do not forget to highlight recreational and cultural amenities since firms place a premium on quality of life issues.

Responsible Municipal Entity: Town Administrator.

7. Consider recreation and culture as economic development activities. Shirley has abundant, attractive open space resources. Further, highways and public rail transportation directly links the Town to the greater Boston metropolitan area. There is potential to draw visitors to Shirley from as far away as Nashua, Boston and Worcester. (“It’s easy to hop the train to Shirley.”) Consider these recreational and cultural resources:

• Trails. Develop the trail connection to Ayer and the Ayer-Dunstable trail. Develop green space along the rail line east of the village center.

• History. Historic mill sites east and west of Shirley Village and the Shirley Center Historical District could become attractions. Explore the potential for a riverside park on the Catacunemaug River in conjunction with the upcoming repair and restoration of the historic Main Street bridge in Shirley Village.

• Woodlands and conservation lands are an opportunity for multi-season uses, including hiking, cross- country skiing, etc. Explore the potential for joint activities with The Trustees of Reservations (TTOR) on their 80-acre Farandnear Reservation in Shirley Center; and with the Oxbow National Wildlife Refuge located near the border with Shirley.

• Water. The Nashua River is an undervalued asset that can be better appreciated by getting out on the river. Consider the following example. Each spring, the Athol-Orange River Rat Race draws hundreds of entrants and thousands of spectators, garnering widespread media attention and generating sales for local businesses. Explore a regional event with neighboring towns and/or the Nashua River Watershed Association (NRWA). Utilize the canoe/kayak launch and Bill Ashe Visitor Center recently constructed in the Oxbow National Wildlife Refuge near the border with Shirley. Improve access to the Mulpus Brook and the Squannacook River for recreational uses. The Division of Conservation Services (DCS) funds river trail projects.

Responsible Municipal Entity: Board of Selectmen.

8. Assess Areas Zoned Commercial, Industrial and Mixed-Use for Development Potential. The assessors’ records indicate a limited amount of “potentially developable” commercial, industrial or mixed-use parcels.

Site investigation shows far more sites that are developable. Some existing commercial or industrial parcels could be redeveloped for new uses; some existing parcels have additional developable parcels abutting them. In some cases, the zoning of adjacent parcels might need to be adjusted. Some parcels are brownfields that need remediation to be made available for further development. The following areas should be examined for development potential:

• Mohawk Motors (Great Road) and adjacent area • Burlington Auto Parts (Hazen Road) and adjacent area • The area adjacent to the DPW facility on Great Road • Land adjacent to the town landfill on Leominster Road • Land on the west side of Lancaster Road, adjacent to the existing - industrial park. • Parcels on Ayer Road and Patterson Road.

Responsible Municipal Entity: Planning Board.

9. Explore the Use of Tax Increment Financing (TIF) and other incentive programs to stimulate investment in desired development areas. Massachusetts’ version of Tax Increment Financing allows municipalities to offer flexible targeted incentives to stimulate job creation. Briefly, communities designate areas where they are willing to consider requests for incentives. The community negotiates an incentive agreement with the business that specifies the terms of the incentive. The business pays the regular real estate taxes on the value of the site and existing facility (if any), called the “base value.” It pays reduced or no real estate taxes on the increased value created because of the investment (called the “increment”). Personal property taxes for both existing and new property are exempt during the life of the agreement.

Many communities publish their TIF policies online. Developers appreciate being told the rules up front, and many of them will tailor their project to satisfy local guidelines in order to qualify for the tax incentive.

Responsible Municipal Entity: Board of Selectmen and Planning Board.

10. Aggressively seek funding for road improvements. Road improvements should be part of an integrated capital improvement plan. Town officials should seek out federal and state funds and participate in the transportation planning process at MRPC. (The Shirley Board of Selectmen’s appointment to the Joint Transportation Committee is currently vacant.) Further, they should ensure that key road projects are listed on the Transportation Improvement Plan (TIP) and actively press for regular funding of local projects.

Responsible Municipal Entity: Board of Selectmen and the Department of Public Works.

11. Consider any new potential zoning carefully, and conduct changes incrementally, with extensive outreach to ensure public buy in. Keeping this in mind, the following zoning revisions are recommended:

• Industrial/Commercial Mixed-use Development

In locations with strong potential for mixed-use development, implementing an industrial/commercial mixed-use provision could preserve and expand urban industrial land, while allowing developers to take better advantage of the higher density that these sites can support. Rather than completely prohibiting mixed-use development on the one hand, or letting mixed-use development displace industrial uses on the other hand, these zones could require a base amount of affordable industrial space (e.g. 1 FAR), with mixed-

use development permitted for the balance of the density allotment.

The Town should include a new Industrial/Commercial/Mixed-Use use within existing areas zoned Industrial. Industry can create high-wage, low-barrier-to-entry jobs; diversify economies; replace imports with locally made products; improve regional self-sufficiency; and provide unique retail experiences and a local sense of place.

• Evaluate Current Commercial and Industrial Districts

The Town should conduct a comprehensive analysis of existing Commercial and Industrial Districts, including the Village and Mixed-Use Districts to see if these districts can be expanded; and identify whether adjacent parcels are appropriate for economic development purposes. (Example questions include “Is the parcel vacant?” or “Is there an existing business located on the parcel?”)

If identified parcels meet the standards for economic development, the Town should propose a zoning change, including strong outreach efforts to create public support for the changes.

Responsible Municipal Entity: Planning Board.

Housing ______SECTION 1 - INTRODUCTION

Housing has evolved into a major issue in Commonwealth from about the mid-1990s with housing demand and high prices driven by low mortgage rates and low availability of housing units, to the Great Recession with the national, state and regional housing crisis including; dramatic drops in home values, increased taxes and utility costs and evaporated bank lending, not to mention, record unemployment levels, bankruptcies and the rise in home foreclosures. However, recently the housing crisis shown signs of recovery.

An analysis of housing stock should consider three important aspects: the housing structures, the population inhabiting the housing, and the environment in which the housing is located. This Chapter examines Shirley’s housing stock in terms of age, condition, cost, and demographic trends, as well as the specific needs of different population groups. The data and analysis are based on information obtained from the Montachusett Regional Planning Commission, the Commonwealth of Commonwealth, the United States Census Bureau, and the Commonwealth Department of Correction. It should be noted that Census data that pertains to households does not include the MCI Shirley prison population. However, Census data pertaining to individuals does include the MCI Shirley prison population. Inmate Statistics Reports from the Commonwealth Department of Correction were used to determine the prison population. Then, the prison population was subtracted from Census data that pertains to individuals to meet the purposes of this Housing Element. ______SECTION 2 - COMPREHENSIVE HOUSING NEEDS ASSESSMENT

SHIRLEY GEOGRAPHY

According to the United States Census Bureau, the Town of Shirley has a total area of 15.9 square miles, of which 15.8 square miles is land and 0.1 square miles. Shirley is bordered by the communities of Groton to the north and east, Ayer and Devens to the east, Harvard to the southeast, Lancaster to the south, and Lunenburg and Townsend to the west. In terms of housing distribution throughout the community, Shirley Village is the most densely developed with more rural housing located in the northern areas of the community. The housing stock in the vicinity of Shirley Center (Center Road and Parker Road) is generally historic.

DEMOGRAPHIC DATA

Historic Population Data

Including MCI Shirley inmates, Shirley’s population was 6,373 in 2000 and 7,211 in 2010. However, when subtracting the MCI Shirley population, Table H-1 illustrates that the town added 480 persons during this 10-year period, an increase of 9.10 %. Comparing population growth of communities surrounding Shirley and the Montachusett Region and Commonwealth as a whole Shirley grew at a faster rate than the Region, the Commonwealth, and all abutting communities with the exception of Lancaster (9.14%) and Groton (11.51%) over this 10-year period.

Table H-1: Population Growth vs. Adjacent Communities (2000-2010) Town 2000 2010 % Change Shirley 5,277 5,757 9.10% Groton 9,547 10,646 11.51% Ayer 7,287 7,427 1.92% Harvard 5,981 6,520 9.01% Lancaster 7,380 8,055 9.14% Lunenburg 9,401 10,086 7.28% Townsend 9,198 8,926 -2.95% Montachusett Region 228,005 236,475 3.58% Commonwealth 6,349,097 6,547,629 3.03% Source: U.S. Census and Inmate Statistics, Commonwealth Department of Correction

Table H-2, below, shows Shirley’s historical population figures over the 50-year period from 1960-2010. Table H-3 shows the percentage increase over this same period. These figures reflect Shirley population numbers after excluding individuals that live in correctional facilities.

Table H-2: Historic Population Growth (1960-2010) Year 1960 1970 1980 1990 2000 2010 Shirley 5202 4819 5059 5750 5,277 5,757 Commonwealth 5,148,578 5,689,170 5,737,093 6,016,425 6,349,097 6,547,629 Nation 179,323,175 203,302,031 226,542,199 248,709,873 2,814,219,060 308,745,538 Source: U.S. Census and Inmate Statistics, Commonwealth Department of Correction

As shown in the table H-3 below, Shirley’s population has risen more than 19.46% since 1970. For all five periods compared, Shirley’s population grew less than the Nation.

Table H-3: Population Percentage Increase Years Compared 1960-2010 1970-2010 1980-2010 1990-2010 2000-2010 Shirley 10.67% 19.46% 13.80% 0.12% 9.10% Commonwealth 27.17% 15.09% 14.13% 8.83% 3.13% Nation 72.17% 51.87% 36.29% 24.14% 9.71% Source: U.S. Census and Inmate Statistics, Commonwealth Department of Correction

Population Growth Projections

Table H-4 presents projected population for the Town of Shirley and the Montachusett Region through the year 2030. From the year 2010 to 2030, Shirley’s population is anticipated to increase by just 201 persons or 3.49%, substantially less than the Montachusett Region (9.1%).

Table H-4: Historic and Projected Population Year 2000 2010 2020 2030 Shirley 5,277 5,757 5,924 5,958 Montachusett Region 228,005 236,475 251,149 258,030 Source: Montachusett Regional Planning Commission (MRPC)

This forecast was developed by MRPC using the Hamilton-Perry Method. This method is a simplified form of the commonly used Cohort-Component Method that requires less data, but research has found it an appropriate methodology for smaller geographies. This method uses data from the two most recent de-centennial censuses (2000 and 2010) to determine the level of growth and/or decline that has previously occurred in an area by age group, and applies the cohort-change ratios to the current population figures to determine forecasts for each age group in future years. Projections were produced for 2020 and 2030 for the Town of Shirley (excluding Shirley MCI inmates) and the Montachusett Region as a whole.

Population by Age of Residents

The figures and percentages in the table below reflect population changes after excluding the individuals that live in the correctional facility. In the decade from 2000 to 2010, Shirley lost a total of 227 persons up to the age of 44, despite growth in the overall population of the Town. However, during the same period, the Town gained 707 residents in the age group of 45 and above. This increase is, in part, due to the aging of the baby-boom generation. The reduction in persons between the ages of 44 and under in particular may also be attributed to a lack of local jobs available in the community and a shortage of housing affordable to young adults. This aging of the Town’s population also indicates a need to consider the development of more senior housing in the community to accommodate the Town’s current population and enable them to continue to live in Shirley.

Table H-5: Age Distribution Age Group 2000 2010 % Change

<5 Years Old 379 325 -14.25%

5-19 Years 1,099 1,148 4.46%

20-34 Years 934 936 0.25%

35-44 Years 1,066 842 -21.01%

45-54 Years 802 1023 27.51%

55-64 Years 432 813 88.28%

65-74 Years 321 354 18.58%

75 Years and Over 244 316 29.51%

Source: U.S. Census and Inmate Statistics, Commonwealth Department of Correction

HOUSEHOLD AND HOUSING CHARACTERISTICS

Household Composition

As of 2010, Shirley had a total of 2,264 occupied housing units (households) out of a total of 2,427 housing units. Of these households, 1,561, or 68.9%, were family households and 703 households, or 31.1% were non-family households. The 2010 figure represents an increase of 360 households (or 17.4%) since 2000.

Family Households

The proportion of family households, families with own children under 18, husband-wife families, and husband-wife families with own children under 18 years is higher in Shirley than in the county, Commonwealth, and nation as a whole. The proportion of female householders with no husband present is lower than in the county, the Commonwealth, or nation with the exception of female householders with own children under 18, which is the same as Middlesex County.

Table H-6: Family Households Shirley Shirley Middlesex Households by Type Commonwealth % Nation % # % County % Family Households (families) 1,561 68.9% 63.1% 63.0% 66.4%

With own Children under 18 684 30.2% 29.0% 28.3% 29.8%

Husband-wife Family 1,251 55.3% 49.5% 46.3% 48.4%

With own Children under 18 years 513 22.7% 22.6% 19.7% 20.2%

Female householder, no husband present 213 9.4% 10.1% 12.5% 13.1%

With own children under 18 years 115 5.1% 5.1% 6.8% 7.2% Source: 2010 U.S. Census Non-Family Households

Shirley is less likely to have non-family households when compared with county, Commonwealth and national averages. Shirley also has a smaller percentage of householders living alone than Middlesex County, Commonwealth, and nation. Table H-7 shows non-family households by type and location.

Table H-7: Non-Family Households Shirley Shirley Middlesex Commonwealth Nation Households by Type # % County % %

% Non-Family Households 703 31.1% 36.9% 37.0% 33.6% Householder living alone 27.8% 28.7% 26.7% 555 24.5% Source: 2010 U.S. Census

Households with Individuals 18 Years and Younger and 65 Years and Older 75

Shirley’s percent of households with individuals 18 years and younger is 32.7%. This is higher than Middlesex County and the Commonwealth as a whole but lower than the nation. Shirley also has a lower proportion of households with individuals 65 years of age than Middlesex county, the Commonwealth and the nation.

Table H-8: Households with Individuals 18 Years and Younger and 65 Years and Older Households by Type Shirley Shirley Middlesex Commonwealth Nation # % County % % % Households with individuals under 18 741 32.7% 31.0% 30.8% 33.4%

Households with individuals 65 years and older 504 22.3% 24.5% 25.6% 24.9%

Source 2010 U.S. Census Household Size

Shirley’s average household size of 2.54 is larger than the county and Commonwealth but slightly lower than the nation while its average family size is lower than Middlesex County, the Commonwealth, and the nation. Table H-9 presents the data for average household and family size by location. The source of this information is from the 2010 Census; it is not available in the 2011-2015 ACS 5-year Estimates.

Table H-9: Average Household and Family Size by Geographic Place Middlesex Shirley Commonwealth Nation County Average 2.49 2.48 2.58 2.54 Household Size Average Family 3.10 3.08 3.14 3.06 Size Source: 2010 U.S. Census Total Housing Units 2000-2010

A comparison of total, occupied, and vacant housing units in Shirley and surrounding communities is shown in Table H- 10. The number of housing units in Shirley increased by 271 units from 2000 to 2010, to 2,427 total units in 2010. Of these, 163 units, or 6.7%, were vacant in 2010, an increase of 74 vacant units since 2000. This in part reflects increased numbers of foreclosures, but also a substantial number of rental, seasonal and recreational units. This vacancy rate is slightly lower than the combined vacancy rate of the surrounding communities, with the exception of Groton and Townsend.

Table H-10: Housing Units by Community Housing Units 2000 Housing Units 2010 Town Occupied % Vacant % Total Occupied % Vacant % Total Shirley 2,067 95.9% 89 4.1% 2,156 2,264 93.3% 163 6.7% 2,427 Groton 3,268 96.3% 125 3.7% 3,393 3,753 94.1% 236 5.9% 3,989 Ayer 2,982 94.5% 172 5.5% 3,154 3,118 90.1% 344 9.9% 3,462 Harvard 1,809 81.3% 416 18.7% 2,225 1,893 92.5% 154 7.5% 2,047 Lancaster 2049 95.7% 92 4.3% 2141 2409 92.2% 205 7.8% 2614 Lunenburg 3,535 96.4% 133 3.6% 3,668 3,835 92.8% 298 7.2% 4,133

Townsend 3,110 97.7% 74 2.3% 3,184 3,240 95.7% 145 4.3% 3,385 Average - 93.9% - 6.0% - - 92.9% - 7.0% -

Source: U.S. Census (2000 & 2010)

Age of Housing Stock

As can be seen in the table below, more than 61% of Shirley’s housing structures were built after 1970. However, it should be noted that 23.5% of the housing stock was built in 1939 or earlier. It is quite likely that many of these older residences would not meet today’s various housing codes (plumbing, electricity, weather-proofing, septic systems, building codes, etc.). Aesthetic improvements could also be made, which would serve to enhance the visual appearance of neighborhoods throughout the community. The current percentage of pre-1940 housing stock is lower than the Commonwealth, but higher than the national average.

Table H-11: Age of Housing Stock Commonwealth National Shirley Average Average Year Structure Built Estimate Percent Percent Percent Built 1939 or earlier 578 23.5% 34.0% 13.2% Built 1940 to 1949 17 0.7% 5.9% 5.3% Built 1950 to 1959 108 4.4% 11.5% 10.7% Built 1960 to 1969 245 10.0% 10.3% 10.9% Built 1970 to 1979 297 12.1% 11.6% 15.7% Built 1980 to 1989 300 12.2% 10.7% 13.7% Built 1990 to 1999 395 16.0% 7.5% 14.0% Built 2000 to 2009 508 20.6% 7.6% 14.9% Built 2010 or later 14 0.6% 1.0% 6.6% Total housing units 2,462 100% 100% 100% Source: 20011-2015 ACS 5-year Estimates

Housing Units by Number of Units in Structure

Housing units by the number of units in the structure is only available through American Community Survey (ACS). As shown in Table H-12, about 64.5% of housing units within the Town of Shirley are single family units. About 10.1% of the Town’s housing stock consists of mobile homes, a substantially greater share than found in Middlesex County (0.4%) and the Commonwealth (0.8%) overall.

Table H-12: Units in Structure Units in Structure Number Percent Total housing units 2,462 100% 1-unit, detached 1,442 58.6% 1-unit, attached 145 5.9% 2 units 241 9.8% 3 or 4 units 185 7.5% 5 to 9 units 161 6.5% 10 to 19 units 40 1.6% 20 or more units 0 0% Mobile home 248 10.1% Source: 2011-2015 ACS 5-year Estimates Mechanical Systems

According to the American Community Survey (ACS), all Shirley households have complete plumbing facilities, complete kitchen facilities, but 52 or 2.2% have a lack of land line telephone service.

Table H-13 Mechanical Systems Middlesex Commonwealth Nation Selected Characteristics Shirley # Shirley % County % % % Occupied housing units 2,331 ------Lacking complete plumbing 0 0.0% 0.3% 0.4% 0.4% facilities Lacking complete kitchen 0 0.0% 0.7% 0.8% 0.9% facilities Lack of telephone service 52 2.2% 1.6% 1.7% 2.5% Source: 20011-2015 ACS 5-year Estimates

INCOME AND HOUSING COSTS

Household Income and Median Household Income

By definition, based on five-year American Community Survey (ACS) data for the 2011-2015 period, 50% of Shirley’s households were earning less than the median income of $67,896. Shirley’s median household income of $67,896 is higher 78

in comparison to the nation ($53,889) but lower than Middlesex County ($85,118) and the Commonwealth ($68,563). The table below compares Shirley household income ranges with Middlesex County, the Commonwealth, and the Nation.

Table H-14: Household Income Households Shirley Shirley Middlesex Commonwealth Nation # % County % % % < $15,000 205 8.7% 8.4% 11.2% 12.6% $15,000-$24,999 269 11.5% 6.7% 8.5% 10.6% $25,000-$34,999 118 5.1% 6.2% 7.7% 10.1% $35,000-$49,999 150 6.4% 8.7% 10.4% 13.4% $50,000-$74,999 513 22.0% 14.6% 15.8% 17.8% $75,000-$99,999 390 16.7% 12.3% 12.5% 12.1% $100,000-$149,999 353 15.1% 19.0% 16.9% 13.1% $150,000-$199,999 163 7.0% 10.6% 8.1% 5.1% $200,000 > 170 7.3% 13.4% 8.9% 5.3% Source: 2011-2015 ACS Data Housing Costs and Affordability

According to the generally accepted definition of affordable housing, housing is considered affordable when “a household pays no more than 30% of its annual income for rent or mortgage.” Multiple sources and organizations agree with this definition. These include the American Planning Association (APA), the Commonwealth Department of Housing and Community Development (DHCD), and the Citizens’ Housing and Planning Association (CHAPA). Households paying in excess of 50% of their annual income are considered severely cost burdened and, comparing statistics from the 2000 and 2010 U.S. Census, these households represent a growing share of households in Commonwealth.

As reported by the American Community Survey (ACS) 2011-15 5-year estimates, Table H-15 shows selected monthly owner costs for Shirley housing units with a mortgage. There are 1,216 housing units in the town with a mortgage payment. The median monthly housing cost for units with a mortgage is $2,118. Shirley’s median monthly housing costs for units with a mortgage is $2,118 is more than the U.S. ($1,492) and the Commonwealth ($2,063) but less than Middlesex County ($2,377).

Table H-15: Selected Monthly Owner Costs (With Mortgage)

Middlesex County Monthly Owner Cost Shirley # Shirley % % Commonwealth % Nation % Less than $500 26 2.1% 0.4% 0.6% 1.8%

$500 to $999 70 5.8% 3.6% 6.3% 20.1%

$1,000 to $1,499 108 8.9% 11.0% 17.0% 28.5%

$1,500 to $1,999 322 26.5% 18.7% 23.5% 20.2%

$2,000 to $2,499 347 28.5% 21.6% 20.9% 11.9%

$2,500 to $2,999 202 16.6% 17.0% 13.6% 7.0%

$3,000 or more 141 11.6% 27.8% 18.2% 10.4%

Source: ACS 2011-2015 5-year estimates

Table H-16 indicates that almost (35.9%) of Shirley’s residents who own a home and have a mortgage are paying more than 30% of their income towards monthly mortgage payments and other selected housing costs. As indicated above, housing is generally considered affordable when it requires no more than 30% of its occupants’ income. The percentage of residents exceeding the 30% level in Shirley is more than Middlesex County (32.4%), the U.S. (32.5%), and the Commonwealth (34.5%).

Table H-16: Selected Monthly Owner Costs as a Percentage of Household Income (SMOCAHI) Middlesex Shirley # Shirley % County % Commonwealth % Nation % Housing Units with a 1,178 ------mortgage (excluding units where SMOCAHI cannot be computed)

Less than 20.0 percent 451 38.3% 38.3% 36.3% 40.0%

20.0 to 24.9 percent 192 16.3% 17.2% 16.8% 16.1%

25.0 to 29.9 percent 112 9.5% 12.0% 12.4% 11.4%

30.0 to 34.9 percent 53 4.5% 8.2% 8.5% 7.8%

35.0 percent or more 370 31.4% 24.2% 26.0% 24.7%

Source: ACS 2011-2015 5-year estimates

Table H-17 shows the range of rent prices paid by Shirley’s residents. There are 719 occupied units where rent is collected. The median monthly rent is $942. For rental unit housing costs, Shirley’s median gross rent of $942 is higher than the median rent value for the Nation ($928), but lower than Middlesex County ($1,341), and the Commonwealth ($1,102).

Table H-17 Gross Rents Middlesex County Commonwealth Monthly Rental Cost Shirley # Shirley % % % Nation %

Less than $500 186 25.9% 10.7% 15.4% 11.8%

$500 to $999 230 32.0% 16.9% 27.5% 44.7%

$1,000 to $1,499 86 12.0% 33.0% 31.3% 27.1%

$1,500 to $1,999 112 15.6% 24.1% 15.9% 10.0%

$2,000 to $2,499 59 8.2% 9.2% 6.0% 3.7%

$2,500 to $2,999 46 6.4% 3.7% 2.2% 1.4%

$3,000 or more 0 0.0% 2.5% 1.8% 1.3%

No rent paid 15 X X X X

Median (dollars) 942 X 1,341 1,102 928

Source: ACS 2011-2015 5-year estimates

Table H-18 shows that 39.8% of renters in Shirley are paying more than 30% of their income for rent. Yet the percentage of residents exceeding the 30% level is less in Shirley than Middlesex County (46.4%), the Nation (51.8%) and the Commonwealth (50.6%).

Table H-18: Gross Rent as a Percentage of Monthly Income (GRAPMI) Shirley # Shirley % Middlesex Commonwealth Nation % County % % Occupied units paying rent 657 ------(excluding units where GRAPMI cannot be computed)

Less than 15.0 percent 56 7.8% 13.1% 12.1% 12.0%

15.0 to 19.9 percent 133 18.5% 14.3% 12.4% 12.2%

20.0 to 24.9 percent 91 12.7% 13.7% 12.5% 12.5%

25.0 to 29.9 percent 153 21.3% 12.6% 12.5% 11.5%

30.0 to 34.9 percent 76 10.6% 9.6% 10.1% 9.1%

35.0 percent or more 210 29.2% 36.8% 40.5% 42.7%

Source: ACS 2011-2015 5-year estimates

Housing Market – Current Development Trends

The Shirley Building Department has provided figures for building permits issued in Shirley for new single- and multi- family housing and condominiums for the years between 2004 and 2016. As indicated in Table H-19, Shirley issued 19 permits in 2014 18 permits in 2015, but fewer in 2016 (just 12). Based on a comparison with the preceding years, Shirley’s housing market appears to be rebounding. However, it has not yet reached the level of development experienced in 2004, 2005, and 2006 before the collapse of the housing market. It should also be noted that just one permit was issued for multi- family housing between 2004 and 2016.

Table H-19: Shirley Building Permits Year Single Multi Condominiu Total Family Family m

2004 32 0 5 37

2005 26 0 12 38

2006 27 0 4 31

2007 20 0 0 20

2008 7 0 0 7

2009 15 0 0 15

2010 23 0 0 23

2011 9 0 4 13

2012 7 0 4 11

2013 23 0 6 29

2014 19 0 0 19

2015 18 0 0 18

2016 11 1 0 12

Source: Shirley Building Department

The housing downturn, which significantly impeded the housing market nationally from 2006 until recently, not only led to a decrease in new building activity, but also resulted in an increased rate of foreclosures during this period across the country, the Commonwealth, and the Montachusett Region. It should be noted that, according to the Warren Group, there has been a recent increase in foreclosures in Shirley over the last few years; in 2013, there were four foreclosures compared to five in 2014, eight in 2015, and ten in 2016.

Home Values

Table H-20 below shows the number of single family homes and condominiums sold from the period between 2004 and 2016, and the median sale prices for each type of unit. The median sale price of a home in Shirley peaked in 2006 and declined afterward as a result of the collapse of the mortgage market. The median sales price for a single-family home in 2016 ($292,000) was approximately 80% of the 2006 median sales price ($367,000). However, as can be seen in the table below, the housing market seems to be recovering in recent years, in terms of the number of sales of both single-family homes and condominiums.

Table H-20: Home Sales and Median Sales Price Year Period 1-Family Price Condo Price All Price Homes

2004 Jan - Dec 70 $332,450 17 $220,000 140 $302,000

2005 Jan - Dec 52 $340,000 17 $230,000 108 $305,750

2006 Jan - Dec 51 $367,000 17 $267,500 92 $351,500

2007 Jan - Dec 47 $343,000 22 $200,000 100 $310,000

2008 Jan - Dec 27 $289,000 6 $316,000 51 $317,000

2009 Jan - Dec 39 $250,000 5 $210,000 59 $239,500

2010 Jan - Dec 36 $247,000 10 $140,000 77 $270,000

2011 Jan - Dec 33 $210,000 10 $146,375 62 $209,200

2012 Jan - Dec 51 $265,000 12 $115,101 83 $237,000

2013 Jan - Dec 57 $267,500 11 $235,000 95 $253,922

2014 Jan - Dec 43 $330,000 15 $226,500 90 $255,000

2015 Jan - Dec 59 $310,00 13 $164,400 99 $296,000

2016 Jan - Dec 68 $292,000 17 $187,000 115 $267,500

Source: The Warren Group, 2016 Subsidized Housing

The Commonwealth’ statute concerning affordable housing development (MGL Ch. 40B, Sections 20-23) cites that affordably produced and priced homes must be available to households where the incomes do not exceed 80% of the median family income (MFI) for the region in which the community is located. The U.S. Department of Housing and Urban Development (HUD) calculates the income limits for local areas on an annual basis, based on median income by metropolitan and non-metropolitan area. It should be noted that HUD’s calculation of income limits does not always equal 83

a strict calculation of 80% of the MFI due to adjustments for high housing costs relative to income, application of state non- metropolitan income limits in low-income areas and national maximums in high-income areas.

Based on HUD’s designation, Shirley is part of the Boston-Cambridge-Quincy, MA-NH HUD Metro Fair Market Rents (FMR) area. The median family income for this area in FY2016, calculated on the basis of a 4-person family, is $95,696. (Note that this FMR area includes Metropolitan Boston which includes many communities with median incomes substantially greater than Shirley). Based on this and HUD’s adjustments discussed above, in FY16, adjusted low income limits for family sizes ranging from 1 to 8 persons are shown in Table H-21.

Table H-21: Low (80%) Income Limits by Household Size (FY16) Household Size 80% of Median Income

1 $51,150

2 $58,450

3 $65,750

4 $73,050

5 $78,900

6 $84,750

7 $90,600

8 $96,450

Source: U.S. Department of Housing and Urban Development (HUD)

For the purposes of Chapter 40B, affordable housing is generally defined as housing units that are:

1. Subsidized by an eligible Commonwealth of Commonwealth or federal program.

2. Subject to a long-term deed restriction limiting occupancy to income eligible households for a specified period of time (at least 30 years or longer for newly created affordable units, and at least 15 years for rehabilitated units).

3. Subject to an Affirmative Fair Marketing Plan.

The Chapter 40B threshold for affordable housing requires that at least 10% of the housing in every community meets the 80% median household income figure discussed above. If a town or city does not have 10%of their year-round housing units in the Commonwealth’s affordable housing inventory, then a developer can submit an application under the provisions of MGL Chapter 40B with greater development density than allowed under the town’s zoning bylaw. If the application is denied by the Zoning Board of Appeals, the developer can appeal to the Commonwealth Housing Appeals Committee.

Forty-eight (48) communities in Commonwealth have met the 10% threshold, based on the updated Subsidized Housing Inventory (SHI) released by DHCD in December 2014 (up from 41 communities in the April 2013 inventory). This means 84

that 13.7% of Commonwealth’ 351 municipalities have achieved the Chapter 40B target.

According to DHCD, Shirley has 2,427 year-round housing units, of which 60 units are counted in the DHCD Subsidized Housing Inventory (SHI), representing 2.48% of Shirley’s housing stock. Table H-22 provides the detailed SHI for the Town.

Table H-22: Subsidized Housing Inventory Project Name Address Type Total Comp Subsidizing SHI Permit Agency Benjamin Hill Benjamin Road Ownership 9 No MA Dept. of Housing and Community Development Shaker Meadows Harvard Road Rental 48 No Rural Housing Service DDS Group Homes Confidential Not 3 No MA Dept. of Available Developmental Services Source: DHCD Chapter 40B Subsidized Housing Inventory (the most recent available is December, 2014)

______SECTION 3: HOUSING GOALS, OBJECTIVES AND RECOMMENDATIONS

GOAL: • Ensure that housing opportunities are available for a broad range of income levels and household types including affordability, homeownership, and condition of the housing stock while maintaining the town’s community character.

OBJECTIVES: • Promote the use of the Low Impact Development Bylaw. • Continue to apply for Community Development Block Grant (CDBG) funds for housing rehabilitation. • Explore preparation of A Planning Assistance Toward Housing (PATH) grant application for implementation of this housing element to meet housing goal and objectives. • Reconsider the Community Preservation Act (CPA) as a smart growth tool that could promote housing. • Consider revisions to current regulations for senior and assisted-living housing. • Facilitate long-term affordability of energy in housing. • Collaborate with private non-profit organizations (e.g., Habitat for Humanity and MEC). • Monitor foreclosures. • Strive to comply with Chapter 40B.

RECOMMENDATIONS:

1. Promote the Use of the Low Impact Development Bylaw

There are many benefits of low impact development, including the efficient use of land to protect environmental resources. In the Town of Shirley, the vast majority of developable land is within the residential districts that make up most of the rural areas. Zoning in Shirley already allows for low impact development. However, it is infrequently used. The Town should find ways to promote its use by making it a more attractive alternative to developers.

Responsible Municipal Entity: Planning Board

2. Continue to apply for Community Development Block Grant (CDBG) Funds for Housing Rehabilitation

About 23.5% of the housing stock in Shirley was built in 1939 and many of these older residences would not meet today’s various housing codes. The Towns of Shirley and Lancaster applied for a regional FY15 Community Development Block Grant (CDBG) for Housing Rehabilitation and Home Heating Fuel Assistance that was funded in July 2015 in the amount of $940,389 by the Commonwealth Department of Housing and Community Development. Beneficiaries of these programs will be low and moderate income residents in Shirley and Lancaster.

The Town of Shirley applied for CDBG funds for Housing Rehabilitation on March 10th, 2017 and should continue to apply on an annual basis. CDBG is a federal program under the U.S. Department of Housing and Urban Development (HUD), which is implemented at the state level by the Department of Housing and Community Development (DHCD). The Town should also continue its outreach efforts to make certain that Shirley residents are aware of this program.

Responsible Municipal Entity: Town Administrator/ Board of Selectmen.

3. Explore preparation of a Planning Assistance Toward Housing (PATH) grant application to the Department of Housing and Community Development (DHCD) for Implementation of this Housing Element to meet Housing Goal and Objectives

PATH has funds available to assist communities expand housing opportunities. Funding is available to communities to support a broad range of planning activities, including community initiated activities on municipally-owned sites; changes to land use and zoning; and planning for housing/mixed-use development in specific geographic areas. Priority for funding is given to applications that support the creation of as-of-right multi-family zoning districts for DHCD approval and/or encourage new multi-family housing production in new or existing mixed-use districts (e.g., within city or town centers or transit-oriented development areas). The complete list of eligible activities can be found at www.mass.gov/hed/community/planning/planning-assistance-toward-housing-path.html

Responsible Municipal Entity: Town Administrator/ Board of Selectmen.

4. Reconsider the Community Preservation Act (CPA) as a Smart Growth Tool that Could Promote

Housing

While participation in the Commonwealth Community Preservation Act (CPA) has previously been proposed in Shirley, it has not yet been brought to a vote at Town Meeting. CPA is a smart growth tool that helps communities preserve open space and historic sites, create affordable housing, and develop outdoor recreational facilities. CPA can also strengthen the local economy by expanding housing opportunities and construction jobs for Shirley’s workforce.

CPA allows communities to create a local Community Preservation Fund for open space protection, historic preservation, affordable housing, and outdoor recreation. Community preservation monies are raised locally through the imposition of a surcharge of up to 3% of the tax levy against real property. Municipalities must adopt CPA by ballot referendum. The CPA statute also creates a statewide Community Preservation Trust Fund, administered by the Department of Revenue (DOR), which provides distributions each year to communities that have adopted CPA. These annual disbursements supplement community funds and serve as an incentive for communities to pass CPA.

Eligible uses of CPA for affordable housing are as follows:

• Property acquisition. • Housing creation. • Property preservation. • Provision of grants, loans, rental assistance, security deposits, interest-rate write downs or other forms of assistance directly to individuals and families who are eligible for community housing, or to an entity that owns, operates or manages such housing, for the purpose of making housing affordable. • Rehabilitation and restoration of properties acquired with CPA money.

Some communities have used CPA funding for projects that accomplish multiple objectives, such as combining affordable housing with open space and/or historic preservation. CPA funding can leverage financing for initiatives carried out by nonprofit and private development partners (discussed below). CPA funds have been used to purchase deed restrictions, rehabilitate existing affordable housing, obtain planning and professional services, fund staffing for support of affordable housing, and to prepare grant applications. Communities have pooled CPA funds to support regional entities that provide affordable housing services.

Responsible Municipal Entity: Board of Selectmen and Planning Board

5. Continue efforts to expand the housing options for an aging population, including age-restricted, senior, and assisted-living housing

Currently, assisted living facilities and/or nursing homes are allowed by special permit by the Planning Board in the RR, R-1, R-2, R-3, and Great Road West Mixed-Use zoning districts. Also, “congregate elderly housing, up to 8 units in a single building”, is a permitted use in the Shirley Village Business District.

Other efforts include a recent Super Town Meeting for Devens in which an article was passed to change zoning in the “Shirley Village Growth District” on the Shirley part of Devens to allow for senior residential housing. Specifically, this allows 120 age-restricted rental units for residents aged 62 or older.

Demographic projections indicate a growing need for age-restricted housing in addition to assisted living and continuing- care housing. The Town should continue efforts to expand the housing options for an aging population. Suggestions include an examination of the current bylaw provisions, with the objective of identifying additional strategies to encourage the development of senior or over-55 housing, and further identifying areas in Town that would benefit from this sort of development.

Responsible Municipal Entity: Planning Board

6. Facilitate long-term affordability of energy in housing

Heating and utilities costs can rise rapidly at a greater rate than income. This can create problems for households that may be barely able to afford the “affordable” housing unit in which they reside. In fact, as previously stated, almost 36% of Shirley’s residents who own a home and have a mortgage are paying more than 30% of their income towards monthly mortgage payments and other selected housing costs. Efforts should be made to seek ways, through creative funding or educational efforts, to encourage initial investments in energy-saving design, construction, and equipment although initially somewhat more expensive, these investments, will pay dividends over time by reducing heat and utility demands and costs for occupants.

It should be noted that the Towns of Shirley and Lancaster applied for a regional FY15 Community Development Block Grant (CDBG) for Home Heating Fuel Assistance that was funded in July 2015 and applied again for additional funding on March 10th, 2017. Shirley should continue this type of effort that benefits low and moderate income households. Shirley has also adopted the Commonwealth Stretch Energy Code which increases energy efficiency requirements for all new residential structures, as well as for those residential additions and renovations that would normally trigger building code requirements. In addition, the Shirley Energy Committee is actively engaged in energy education efforts and programs throughout the community. This committee could potentially expand its efforts to help low and moderate income households identify opportunities to reduce energy expenditures.

Responsible Municipal Entity: Town Administrator/ Board of Selectmen; Shirley Energy Committee.

7. Collaborate with Private Non-Profit Organizations (e.g., Habitat for Humanity and Montachusett Enterprise Center)

As previously stated, according to the Warren Group, the median sales price for a single-family home in 2016 $292,000 and it is anticipated that housing costs will increase as the market continues to recover from the Great Recession. Habitat for Humanity (HFH) is a well-known nonprofit that believes that all people should have a decent, safe and affordable place to live. Habitat builds and repairs houses throughout the world using volunteer labor and donations. Partner families then purchase these houses through no-profit mortgage loans or innovative financing methods. Shirley is located within the service area of Habitat for Humanity North Central Commonwealth which is headquartered in Fitchburg. According to the Executive Director of the North Central Commonwealth affiliate, if there is strong interest in working on a Habitat for Humanity project in Shirley, the following steps should be undertaken: 88

• Initiate contact with the Habitat for Humanity North Central Commonwealth chapter.

• Call for a public meeting of anyone interested in pursuing the possibility of working with Habitat for Humanity in Shirley.

• Identify property or properties that could be built on or renovated.

• Identify funding sources in Shirley. In the end, all sources of funding from individuals, corporations, grants, etc., would need to come from people in Shirley or the Town or others interested in supporting the work. (HFH is a grassroots organization; therefore, all funding is typically raised locally.)

• Once there is a sense of interest, possible funding sources, and a project, representatives from the community should approach North Central Mass HFH and ask to create a “Local Project Committee.” This group would then act as a subcommittee of the affiliate with non-profit status and a good deal of autonomy, but the finances would be managed through the affiliate’s accounts.

• HFH would then appoint a construction manager and initiate the project.

Another non-profit organization that supports housing development and rehabilitation is the Montachusett Enterprise Center, Inc. (MEC). MEC is a non-profit affiliate of MRPC. MEC operates exclusively for the charitable and educational purposes of management and program direction for projects designed to alleviate socioeconomic problems in the Montachusett Region. Since its inception in 2003, MEC in partnership with Montachusett Regional Vocational Technical High School (Monty Tech) has built three homes in Fitchburg which were sold at affordable prices to lower income individuals. Funding for these projects was provided to MEC from the City of Fitchburg HOME Program and Enterprise Bank and Trust Company, Leominster. MEC built a fourth, affordably-priced home in Athol in partnership with a modular home construction firm. MEC’s Board of Directors is comprised of public officials and members of the moderate-income community.

Responsible Municipal Entity: Board of Selectmen, Planning Board

8. Monitor Foreclosures

As previously indicated, according to the Warren Group, there has been a recent increase in foreclosures over the last few years; in 2013, there were four foreclosures compared to five in 2014, eight in 2015, and ten in 2016. Efforts should be made to assist property owners to avoid foreclosure on their property. However, should a property be foreclosed, the Town needs to know the location, specifications, and condition of the property to plan how to address it. For the Town of Athol, MRPC has developed an application for mobile devices to assist the Town in maintaining a current inventory of vacant and foreclosed properties. The application is able to map current locations of vacant properties based on this inventory, enabling the Town to update this inventory in real time and maintain a complete and current database of distressed properties. This inventory can be used to prioritize properties for rehabilitation and resale and to monitor progress toward reduction and elimination of foreclosure activity within the community. The inventory can also be used to identify “hot spots” within the community with higher densities of foreclosures to assess their causes and determine possible means of mitigation.

Responsible Municipal Entity: Board of Selectmen/Town Administrator, Planning Board/ Assessors Office.

9. Strive to Comply with Chapter 40B

Shirley should strive to Comply with Chapter 40B of Commonwealth General Laws. Chapter 40B outlines a municipality’s responsibilities regarding the provision of low and moderate-income housing. Under the law, at least 10% of their community’s year-round housing stock must be affordable for low and moderate-income households, defined as those earning no more than 80% of the area median income. At the present time, about 2.48% of Shirley’s housing stock meets the Chapter 40B definition. The benefits of being proactive in this area include not just compliance with Chapter 40B but also helping to provide affordable housing units for a broad range of income groups, including municipal employees, fire fighters, policemen and teachers.

To assist with this, the town could explore adding an inclusionary housing bylaw that requires new developments to set aside a certain percentage of units as affordable and incentivizes developers to provide additional affordable units above and beyond the base requirement.

Responsible Municipal Entity: Planning Board and Zoning Board of Appeals.

Transportation and Circulation ______SECTION 1 - INTRODUCTION

This Chapter of the Master Plan discusses Transportation/Circulation in Shirley, including private automobiles, public transportation, bicycling, and pedestrian modes of travel. The ability to move people and goods is essential to the economic vitality and quality of life in the region. The existing conditions of the roadway system are reviewed by looking at data such as traffic counts and crash incidents. Proposals and recommendations will then be made taking into consideration other related issues such as open space for an interconnected bicycle and pathway system within the Town and connections to other adjoining towns and the region.

______SECTION 2 - ROLE OF THE REGIONAL PLANNING AGENCY

The Montachusett Regional Planning Commission (MRPC) acts as staff to the Montachusett Metropolitan Planning Organization (MPO) and has the responsibility of prioritizing transportation projects within the Montachusett region. This shift in priority setting is intended to give municipalities a stronger role in planning transportation improvements that directly affect them. It is important to note that transportation projects and plans must be included in a regional transportation plan in order to receive federal funding for implementation.

REGIONAL TRANSPORTATION PLAN (RTP)

The Regional Transportation Plan (RTP) outlines the transportation priority needs and policies for the region. Before projects receive federal funding, they must be identified and incorporated into the policy goals and vision of the RTP. The RTP is developed through studies, discussions with local officials, boards and commissions, and public comment. Each MPO in the Commonwealth of Massachusetts develops a RTP to provide guidance to local and state officials in deciding how to spend federal and state transportation funds. The RTP for the Montachusett Region identifies both short and long- range projects for local roads, highways, bridges, rail, transit, bike and pedestrian trails, freight and airports as well as priorities, goals, vision and strategy.

The RTP is updated every four years. The MRPC recently completed the 2016 update. Information on the development of the RTP can be found on the MRPC website at www.mrpc.org.

TRANSPORTATION IMPROVEMENT PROGRAM (TIP)

The Transportation Improvement Program (TIP) is a federally mandated, annually updated, prioritized listing of short-term highway construction and transit projects proposed for implementation during a four-year cycle. It is a means of allocating scarce federal and state monetary resources across the state to projects that each region deems to be its highest priorities. The expenditures listed in the TIP must fall within projections of available federal and state aid. The Massachusetts Department of Transportation (MassDOT) Highway Division, moreover, is committed to funding those projects that will be ready for advertisement in Federal Fiscal Year (FFY) 2017 and beyond. To this end, the regional TIP contains a financial 91

plan showing the revenue source or sources, current or proposed, for each project, for each anticipated FFY of advertisement.

To receive federal or state funding, a transportation project must be included in the TIP. Projects listed in the TIP must also conform to the State Implementation Plan (SIP) for Air Quality Conformity in accordance with the Clean Air Act Amendments (CAAA), giving special consideration to “regionally significant” projects. Transportation projects funded with federal funds from other federal agencies, or with local or private resources, should be identified to reflect the integrated and intermodal nature of the metropolitan transportation planning process.

The TIP must also be consistent with the current RTP for the Montachusett Region. In addition, the TIP estimates future funding sources for operating and maintaining the current transportation network, as well as the costs of capital improvements. The agency responsible for implementing highway projects in the TIP, unless otherwise noted, is the MassDOT Highway Division and, for transit projects, or Montachusett Regional Transit Authority.

The Montachusett TIP is the product of a comprehensive, continuing and cooperative effort (the 3C Process) to improve the regional transportation system by local officials, the Montachusett Joint Transportation Committee (MJTC), the Montachusett Regional Transit Authority (MART), the MRPC, and the MassDOT. Together these organizations, along with local officials, comprise the signatories representing the MPO.

PROJECT DEVELOPMENT SUMMARY

Project development is the process that takes a transportation improvement from concept through construction. Every year the Montachusett Region receives federal and state funds for projects to improve the transportation network in local communities. As outlined above. these funds and projects are prioritized through the MPO, a regional advisory group that annually develops the Montachusett TIP.

For a community to receive funds, the project must follow a multi-step review and approval process required by the MassDOT Highway Division. This process is summarized in the “project development process” on the following page.

Project proponents are required to follow this process whenever MassDOT Highway Division is involved in the decision- making process. The project development procedures are applicable to any of the following situations:

• When MassDOT is the proponent, or

• When MassDOT is responsible for project funding (state or federal-aid projects), or

• When MassDOT controls the infrastructure (projects on state highways).

Projects with local jurisdiction and local funding sources are not required to go through this review process unless the project is located in the National Highway or Federal-Aid Systems.

PROJECT DEVELOPMENT PROCESS

PROCESS OUTCOMES

Problem / Need / Opportunity STEP I • Project Need Form (PNF) Identification

• Project Planning Report STEP II Planning (If Necessary)

• Project Initiation Form (PIF)

• Identification of Appropriate Funding STEP III Project Initiation • Definition of Appropriate Next Steps

• Project Review Committee Action

• Plans, Specs and Estimates (PS&E)

• Environmental Studies and STEP IV Environmental / Design / ROW Process Permits

• Right-of-Way Plans

Permits

• Regional and State STEP V Programming Transportation Improvement Programs (TIP)

• Programming of Funds

• Construction Bids and STEP VI Procurement Contractor Selection

STEP VII Construction • Build Project

STEP Project Assessment VIII

Source: MassDOT Highway Division

The eight steps in the project development process are described in detail in Chapter 2 of the Project Development Guide of the MassDOT Highway Division Design Guidebook, available online at:

(http://www.mhd.state.ma.us/default.asp?pgid=content/designGuide&sid=about).

To get a project constructed, a community should follow the steps outlined below.

1. The community meets with the District Office of the MassDOT Highway Division to review and discuss the potential project. The District Office provides the community with information and feedback about the proposed project’s scope, cost, issues, etc.

2. The community submits a Project Need Form (PNF)to the District Office. The PNF should describe the proposed project and include any relevant support materials

3. After review and feedback from MassDOT Highway Division on the PNF, the community prepares a Project Initiation Form (PIF), and submits it to the District Office, along with relevant support materials.

4. MassDOT and the Project Review Committee (PRC) act on the PIF. If the project is approved by the PRC, the community is notified and, if applicable, initiates the design process for the project.

5. The community hires a design consultant and also begins work on the right-of-way plans, as well as any permits, local approvals, etc. required for the project.

6. During this phase, the project is incorporated into the regional Transportation Improvement Program (TIP). Placement and prioritization of the project is based on available funds, evaluation criteria scoring, design status, and public support and comments.

7. The community holds a public hearing to give community members an opportunity to provide feedback when the design phase is about 25 percent complete.

8. The design progresses to 100 percent and all plans, specifications, and estimates (PS&E) are completed. The project is then ready for advertisement by MassDOT.

______SECTION 3 - ROADWAY SYSTEM

EXISTING NETWORK

State Route 2, or the Old Mohawk Trail, constructed in the 1930’s, is the most important roadway to Shirley and the region, running east/west through the entire region. This limited access roadway provides the area with a direct link to Boston and to the western portion of the state. Route 2 connects Shirley to all of the region’s major urban communities including Fitchburg, Leominster, and Gardner.

The completion of I-190 in the early 1980’s provided good access from Shirley to Worcester, I-290, and the Massachusetts Turnpike. A second new limited access roadway was added to the region’s highway network with the completion of the Route 140 Bypass in Westminster and Gardner, providing better access to Winchendon and other destinations to the north. Route 2A (the former Route 2) is another east-west roadway that runs parallel to Route 2 through much of the Montachusett Region.

Interstate 495, built in segments between 1955-1982, is also located within close proximity to Shirley and runs north/south across the state. This route is highly traveled and is a major connection northward into New Hampshire and southward to Cape Cod. It also makes a connection to other major routes such as I-90, I-93 and Route 2 and Route 3.

FUNCTIONAL CLASSIFICATION

Functional classification identifies a roadway’s purpose and use as part of the highway network. The highway network consists of a hierarchy of streets and highways designed to channel traffic from location to location in a safe and efficient manner. In both urban and rural areas, streets and highways are classified into four functional highway systems: principal arterials, minor arterials, collector streets and local streets. Shirley can compete for limited federal aid funding to repair their federal-aid eligible roads through the annual TIP process. A Roadway Classification Map can be found in Map 5 at the end of this chapter. Roads classified as “local” are not eligible for federal aid and are maintained by their municipalities. Local roads are eligible for State Highway funds under Chapter 90.

PRINCIPAL ARTERIALS

The principal arterials are multi-lane roadways that connect major activity centers. These arterials carry the highest volumes of traffic at high speed and are often entirely or partially controlled-access roadways with interchanges or grade separations at major crossings. Principal arterials not only carry a major portion of trips entering and leaving a community; they also carry a significant amount of traffic passing through the community.

Principal arterials generally carry the highest traffic volumes. In Massachusetts, traffic volumes on principal arterials usually exceed 25,000 vehicles per day. Because the function of principal arterials is mostly to provide mobility at a high level of service, service to abutting land is of secondary importance. Parking along principal arterials is usually forbidden or discouraged; driveway access onto principal arterials is also discouraged. In Shirley, just one road fits the principal arterial

classification: Route 2. Principal Arterials are eligible for Federal Aid.

MINOR ARTERIALS

Minor arterials feed into principal arterials and serve the dual function of carrying high traffic volumes and providing access to adjacent land uses. Minor arterials place more emphasis on land access; on-street parking is generally permitted but is heavily regulated in order to maximize traffic-carrying capacity during peak travel periods. Minor arterials generally have four travel lanes during peak travel periods (on-street parking may occupy one or more lanes during non-peak hours), but a minor arterial may also have two travel lanes and widen out at signalized intersections. Minor arterials generally carry traffic volumes in the range of 10,000-40,000 average daily trips (ADT). Minor arterials serve as a distribution network to geographic areas smaller than the principal arterials. Trip lengths associated with minor arterials are of a moderate length and travel is at a lower speed than on principal arterials.

COLLECTOR STREETS

Collector streets collect traffic from local streets and channel it into the arterial street system. The focus of collectors is more on land access than on mobility. Collector streets provide traffic circulation within neighborhoods and commercial and industrial areas. Travel speeds are generally lower and parking restrictions fewer than on minor arterials.

Collectors are usually two-lane roadways with minor widening at intersections with arterial streets. Collectors carry traffic volumes in the range of 3,000 to 20,000 ADT. The higher flows are associated with collectors that are over two miles in length and where some element of through traffic between arterials is present.

LOCAL ROADS AND STREETS

Local streets include all the remaining streets that are not included in one of the higher systems. Local streets could be residential or industrial in character or could be access roads to recreation areas or parks. Traffic volumes on local streets are generally 4,000 ADT or less. A great majority of residential streets have volumes of 500 ADT or less. High volume local streets are very long residential roadways (over one mile in length) with access to subdivisions.

The main function of local roads and streets is to provide access to land. Travel speeds on local streets are generally low and parking restrictions generally do not apply. Through travel on residential streets is often discouraged using traffic calming mechanisms. Although local streets carry relatively low traffic volumes overall, they constitute by far the greatest road mileage, accounting for 65 to 80percent of roadway mileage in a typical community. Local roads and streets are not eligible for Federal Aid but are eligible for State Highway funds under Chapter 90.

Table TC-1 below displays mileage in Shirley for each functional classification category. The “Urban” and “Rural” designation is determined by the most recent census and may change federal aid eligibility status depending on classification. All roads determined to be “urban” are eligible for federal aid with the exception of “urban-local” roads. All roads determined to be “rural” are eligible for federal aid with the exception of “rural-local” and “rural minor collectors”. The MRPC regularly distributes information to its member communities on federal aid eligible roads in town. 96

Table TC-1 Road Type Mileage SHIRLEY Rural - Collector 0.77

SHIRLEY Rural - Local 0.29

SHIRLEY Urban - Arterial 35.46

SHIRLEY Urban - Collector 2.11

SHIRLEY Urban - Local 55.84

Source: Mass DOT Road Inventory File (2015)

______SECTION 4 - AVERAGE DAILY TRAFFIC (ADT)

For many years, the MRPC and MassDOT Highway Division have taken traffic counts at numerous locations in Shirley, as part of their regional traffic count program. Table TC-2 lists the traffic counts taken along major routes over 10 years by location. These locations can be seen on Map 1 at this Chapter. Locations listed in the table where traffic counts have been conducted regularly for volume comparison purposes are shown as red dots on the map. Other locations, where traffic counts have been monitored, but not regularly, are shown as green dots; and turning movement counts (TMC) are shown in purple.

The counts consist of data collected during a period of at least 24 weekday hours. To reflect seasonal differences in traffic volumes, MassDOT produces seasonal adjustment factors based on data collected at more than 200 statewide locations where traffic volume data is collected 365 days of the year. The seasonal adjustment factors are then applied to the 24-hour count volume to produce an Average Annual Daily Traffic (AADT) volume for the location. These factors were applied to all counts listed in table TC-2 with the exception of counts listed on Route 2. The counts on Route 2 are permanent count stations that collect data continuously throughout the year.

Table TC-2 – Shirley Traffic Volumes Street/Route Location 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 2016

Center Road North of Main Street 2000 2200 1900

Center Road Southwest of Common Road 1800 2100 2600 1800

Front Street West of Mill Street 6400 6200 6900

Front Street At Harvard Town Line 7000 7200

Great Road (Rt. 2A) At Ayer Town Line 6600 6700 6400

Great Road (Rt. 2A) At Lunenburg Town Line 4700 4300 4600 4500

Lancaster Road South of Elementary School 4400 4600

Lancaster Road South of School Street 4800 4700

Leominster Road At Lunenburg Town Line 2900 3800 3400

Parker Road North of Center Road 3100 2600

Parker Road South of Great Road (Rt. 2A) 2300 2400 3000

Townsend Road At Townsend Town Line 900 1700

Townsend Road South of Groton Road (Rt. 225) 1300 1900 2300

Walker Road South of Hazen Road 1000 1200

Source: MRPC

Regionwide, traffic gradually increased at the beginning of the last decade and then started to drop in 2008. This is likely to be a direct result of the recession and higher energy costs. The increased cost of driving possibly kept some people at home and pushed others toward public transportation. You can see from Table TC-3 that traffic has gradually gone back up in most locations when the economy improved. On average, traffic continues to increase slightly each year throughout the Montachusett Region. If the Town of Shirley is interested in having traffic counts conducted for certain street(s) or intersection(s), the Board of Selectmen should forward a written request to MRPC.

______SECTION 5 - ROADWAY SAFETY

Traffic crashes are often unpredictable, unavoidable events. Most traffic crashes are the result of driver error; however, driver error can be magnified by poor roadway or intersection design, or by inadequate traffic control measures. When crashes occur in high numbers at a particular location, there is probably a common reason for the crashes related to the design and/or signage of the road. These crashes can be predictable and the conditions that increase the chances for crashes are often correctable. Detailed study of crash records can identify these high-crash locations and lead to design improvements that will reduce the number and severity of future crashes. 98

MassDOT obtains crash data from the Registry of Motor Vehicles (RMV) to create crash tables for each community in Massachusetts for use in traffic engineering studies, safety planning activities, and distribution to government agencies and the public. The MRPC Transportation Department has been developing a crash database for the region using historical data and the most recent MassDOT crash tables available. To develop crash statistics from the database, MRPC staff has analyzed information, such as number of crashes, crash location, and crash severity. Crash severity states the types of harm or the most serious outcome of a crash. There are essentially three possible outcomes:

1. Fatal Injury crash: The worst type of harm that involves at least one fatality.

2. Non-fatal Injury crash: The second worst type of harm that involves at least one injury.

3. Property Damage Only (PDO) crash: The third worst type of harm that involves damage to property of any type.

CRASH STATISTICS

The Region saw a total of 12,713 crashes between the years of 2010 and 2012; 122 of those crashes occurred in Shirley. Of these crashes zero were fatal injury crashes, 31 (24 percent) were non-fatal injury crashes, and 91 (75 percent) were property damage only crashes. See Map 2 at the end of this chapter for crash data locations for Shirley.

Crash cluster locations are locations where two or more crashes occur in a three-year period. Table TC-3 below provides the crash cluster locations that occurred within Shirley during 2010-2012. There were 18 crash cluster locations in Shirley which accounted for 51 (42 percent) of the crashes that occurred in Shirley. The crashes are analyzed further based on the Equivalent Property Damage Only (EPDO) crash-severity rating system. EPDO rates a crash based on crash severity that gives one (1) point to a Property Damage Only (PDO) crash, five (5) points for a crash involving at least one Non-Fatal Injury, and ten (10) points to a crash that involves at least one Fatal Injury. In other words, one Fatal Injury crash equals two Non-Fatal Injury crashes or ten Property Damage Only crashes. After determining the EPDO rating for each crash, the ratings of the crashes for each location are totaled. A high EPDO total indicates a dangerous location where crashes have the most severe consequences.

Table TC-3 Crash Cluster Locations, 2010-2012 RT RT CRASH RECOMMEND STREET STREET FATAL INJURY PDO EPDO FURTHER # # COUNT INVESTIGATION 1) GROTON RD 225 TOWNSEND RD 5 0 2 3 13 RECOMMENDE D FOR 2) TOWNSEND LOCATIONS GROTON RD 225 6 0 1 5 10 RD ONE & TWO

3) LITTLE NO FURTHER PARKER RD 3 0 2 1 11 TURNPIKE RD 4) GROTON RD 225 LAWTON RD 3 0 2 1 11 INVESTIGATIO 5) GREAT RD 2A TOWNSEND RD 4 0 1 3 8 N 6) PHOENIX ST FRONT ST 4 0 1 3 8 RECOMMENDE GREAT RD 2A WALKER RD 2 0 1 1 6 D CENTER RD 2 0 1 1 6 GROTON RD 225 2 0 1 1 6 FOR MAIN ST LANCASTER RD 2 0 1 1 6 GROTON RD 225 LONGLEY RD 2 0 1 1 6 REMAINING GREAT RD 2A PARKER RD 3 0 0 3 3 GREAT RD 2A 3 0 0 3 3 LOCATIONS IN GREAT RD 2A 2 0 0 2 2 LANCASTER RD 2 0 0 2 2 THIS TABLE GREAT RD 2A LAWTON RD 2 0 0 2 2

SQUANNACOOK GROTON RD 225 2 0 0 2 2 RD

GREAT RD 2A LONGLEY RD 2 0 0 2 2

TOTALS 51 0 14 37 Source: MRPC

The most significant crash cluster locations in Shirley occurred at or near the Townsend Road and Groton Road intersection between 2010 and 2012. A total of 11 crashes occurred within two crash clusters. The top six crash clusters are labeled on the Crash Data Map (see Map 2). The remaining 71 crashes (58 percent of total crashes) were dispersed at 71 different locations throughout Shirley.

Shirley has implemented several transportation improvements since the DRAFT Transportation Chapter of the Master Plan was completed in Spring 2015. MRPC completed a traffic safety analysis of the Groton Road and Townsend Road intersection titled Traffic Study: Groton Road (Route 225) and Townsend Road Intersection. MassDOT District 3 provided Shirley with several low-cost safety countermeasures which have been implemented. Since the completion of the countermeasures from 12/7/15 to 11/1/16, no crashes occurred at this intersection. The complete lack of crashes shows that the improvements have most likely had a positive impact on driver awareness and decision making as they approach the intersection. However, at least three years of crash reporting is needed to show that crashes have indeed decreased.

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______SECTION 6 - PAVEMENT CONDITION

In most municipalities throughout the United States, road and street surfaces are the largest single cost of building and maintaining a transportation system. Forty to fifty percent of public funds spent on roadway systems are for the road surface. For smaller communities, such as Shirley, the percentage can be much higher. The role of a pavement management system is to improve roadway conditions while making cost-effective decisions on maintenance priorities and schedules. The following list some faulty, but common, approaches to maintaining a road network.

• Worst First - Giving first priority to the roads in the worst condition. This makes a noticeable difference in the worst roads, but often does not address general maintenance tasks, resulting in a rapidly deteriorating network of roads.

• Fighting Fires - Responding to concerns as they arise ignoring preventative maintenance tasks that would save money in the long run.

• Scheduled Repairs - Attending to roads based on periodic maintenance, such as seal coats every five years and overlays every 10 years.

• Political Pressure - Establishing maintenance repairs and schedules based on political considerations.

Unlike many maintenance approaches, which often rely on faulty practices such as these, a pavement management system relies heavily on pavement preservation early and often for the purpose of preventing an increasing deterioration of pavement structure. By maintaining an accurate database with up-to-date road conditions, the needs of a road network are better addressed.

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Figure TC-4

Figure TC-4 above, “Lifecycle of a Road,” illustrates the relationship between repair cost and time. It shows that it is far more economical to preserve roads than to delay repairs and reconstruct roads. A pavement’s life cycle is the time between reconstruction periods. Life cycle cost is the total cost spent on maintenance and repairs for a particular pavement section during its life cycle. One of the main focuses of pavement management is keeping a pavement’s life cycle long while keeping its life cycle cost as low as possible, thus stretching the ever-decreasing maintenance budget.

It is important to preserve a pavement’s condition for as long as possible to keep life cycle cost low by implementing various preventative and routine maintenance techniques. However, it is a reality that budgets often do not allow for this. A pavement management plan should be implemented to keep track of maintenance needs and schedules, thus contributing to as a cost-effective approach to maintaining roadways.

Each year the MRPC surveys communities in the Montachusett Region about their involvement in municipal Pavement Management System activities. Local municipal programs range from non-existent, to basic annually-maintained spreadsheets, to ongoing contracts with consultants using the latest Pavement Management software to analyze town roadways. Although pavement management programs involve additional costs on top of the maintenance budget, many communities are realizing their potential to save money by making well informed decisions. The costs and benefits of using a Pavement Management System should be considered in Shirley.

LOCAL CONDITIONS

The structural conditions of the majority of the roads eligible for federal aid in Shirley are determined by MassDOT and MRPC pavement surveys. The condition is expressed by assigning a Pavement Serviceability Index (PSI) number from 0 to 5 to segments of roadways. PSI is an overall rating of the pavement’s condition. Conditions are rated as excellent, good, 102

fair and poor.

Table TC-5 shows a general correlation between PSI, condition, repair strategies and associated cost. The estimated repair cost was derived from conversations with a Pavement Management Users Group (PMUG,) comprised of other Regional Planning Agencies, the MassDOT and the Federal Highway Administration (FHWA). It reflects the estimated cost to bring the pavement condition to “excellent.”

Table TC-5 Repair Cost PSI Condition Associated Repair Per Square Yard 0 - 2.29 Poor Reconstruction $45

2.3 - 2.79 Fair Rehabilitation (Mill/Overlay) $18

2.8 - 3.49 Good Preventative Maintenance $8.50

3.5 - 5 Excellent Routine Maintenance $0.75

Source: MRPC Regional Pavement Report 2015

Map 3 of this document shows pavement conditions of Federal Aid Eligible roadways in Shirley. Federal Aid Eligible roads include those functionally classified as Interstate, Urban and Rural Arterial, Urban Collector and Rural Major Collector. These roads are both State maintained (State Jurisdiction) and maintained by the Town of Shirley (Local Jurisdiction). Map 4 at the end of this chapter “Pavement Conditions on Surveyed Roads” shows all Federal Aid Eligible roads that have been surveyed. Please note that due to the time frame between data collection and report preparation, conditions of the roadways may have changed. Therefore, this information should be viewed in general terms regarding needs and condition.

CHALLENGES

A major concern to communities is funding available for roadway maintenance (Chapter 90) lagging behind the rising price of such maintenance. Table TC-6 shows the Chapter 90 allocations Shirley will receive in FY 2017 along with the roadway mileage that that money must maintain.

Table TC-6 FY 2017 Chapter 90 Allotment Allotment Road Miles $/Mile $253,372 44 $5,758.45 Source: MassDOT

Pavements are often the single largest expense in any municipal road-maintenance budget. Chapter 90 allocations often do not provide sufficient funding to maintain local roads at their current condition, let alone make major improvements. Due to inadequate funding, it is recommended that communities routinely target funding for federal aid eligible local roadways through the Transportation Improvement Program (TIP). It is also suggested that a Pavement Management Plan be implemented by communities to monitor maintenance needs and schedules. Map 3 at the end of this chapter highlights all

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roadways maintained by the Town of Shirley and eligible to receive TIP funding.

RECOMMENDATIONS FOR PAVEMENT ACTIVITIES

• Shirley should consider the merits of applying the principals of Pavement Management for future maintenance schedules.

• In an effort to reduce the strain on Chapter 90 funds, Shirley should continue to seek funding for infrastructure projects on Local Jurisdiction Federal-Aid Eligible roads through the TIP process.

______SECTION 7 – BRIDGES

Throughout the Montachusett Region, many roads travel over numerous brooks, rivers and water bodies. Within the 22 communities of the Montachusett planning area, some 324 bridges are identified and rated by MassDOT as part of their inventory system. MassDOT provides a Table that includes the town where the bridge is located, the road name the bridge is located on, the bridge identification number, functional classification of the road, year built, historical significance, rebuild date (if applicable), American Association of State Highway and Transportation Officials (AASHTO) rating, and the deficiency status; i.e., structurally deficient or functionally obsolete.

According to the MassDOT, “structurally deficient” is defined as “a bridge structure that has a defect requiring corrective action.” Functionally obsolete is defined as “a bridge which has no structural deficiencies but does not meet standards to adequately serve current user demands.”

As of April 2017, there were 53 bridges listed as functionally obsolete and 39 as structurally deficient throughout the Montachusett region (See Map 6 at the end of this chapter). There is one functionally obsolete bridge in Shirley: Lovell Street over Catacunemaug Brook (State owned, Bridge #S-13-017)

______SECTION 8 - PUBLIC TRANSIT SYSTEM

MONTACHUSETT AREA REGIONAL TRANSIT (MART)

There is no fixed-route bus service provided in Shirley. However, MART runs a bus service in portions of the neighboring community of Lunenburg, as well as a Boston shuttle service that runs three times daily through Devens (MWCC Campus).

INTERCITY BUS SERVICE

There is currently no intercity bus service in the Town of Shirley.

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COMMUTER RAIL

Shirley is fortunate that there is an existing commuter rail station from Fitchburg to Boston in the town center. This station currently has seventeen stops at Shirley (inbound) during the week and six on weekends. Parking is free at this station, making it one of the most desirable locations to board the train within the region, but spaces are limited (65 spaces) and fill up fast.

______SECTION 9 - OTHER TRANSPORTATION SYSTEMS

FREIGHT RAILROADS

Shirley has six at-grade railroad crossings. The railroad travels east/west splitting the town in two. Daily freight trains are of sufficient length to obstruct all of the crossings simultaneously for up to 10 minutes at a time. The nearest split grade crossings are in Ayer and Lunenburg and require a significant (5+ mile detour). This has public safety response implications. At the time of this report, the MRPC is currently conducting a study on the railroad crossings in the downtown area.

There are three railroad companies currently operating freight lines in the Montachusett Region:

1. Pan Am Railways, formerly Guilford Transportation Industries (GTI), is the largest operator of freight rail lines in the Montachusett Region. PanAm operates on a number of lines, including those connecting the Moran Terminal in Charlestown to Mechanicville, New York. With the purchase of the B&M in 1983, GTI acquired the Springfield Terminal Railway (STR), a B&M subsidiary. In addition, GTI has controlling interest in both the Vermont and Massachusetts Railroad (V&M) and the Stony Brook Railroad (SBRR). The V&M and SBRR own one track each, leased to B&M. In Westminster, the Freight Main Line (Ex Fitchburg Route) is owned by the V&M with the freight operator being STR.

2. The Providence and Worcester Railroad Company (P&W) is an independent operator of freight lines. One line operates in the area from Gardner, providing a connection to the GTI system, to Hubbardston, and to Worcester.

3. CSX Transportation purchased Consolidated Rail Corporation (Conrail) in 1997. Conrail was previously established to acquire bankrupt railroad company lines. CSX operates one line running from Fitchburg to Clinton in the Montachusett Region.

AVIATION

Within the Montachusett Region, there are three general aviation municipal airports: the Fitchburg Municipal Airport located in Fitchburg on the Leominster City line, the Gardner Airport in Templeton near the Gardner City Line, and the Sterling Airport in Sterling. Each is classified as a general aviation airport. The former Shirley Airport is no longer a public-use facility. According to the Massachusetts Aeronautics Commission website (www.massaeronautics.org), “The owner/operator of Shirley Airport has decided to change the airport’s status from Privately-Owned/Public-use airport to Private Restricted Landing Area, which means that effective immediately, the airport is closed to public use. Pilots must receive prior permission from the owner/operator to use the airport.” This former airport, located both in Shirley and

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Lancaster, has recently been developed as a solar farm generates electricity for the Town of Billerica, MA. The solar farm portion of the property, however, is only located in the town of Lancaster.

The largest of the municipal airports, by far, is the Fitchburg Municipal Airport. Approximately 515 flights per day are handled on its two-runway system. The airport handles the general aviation needs for the greater Fitchburg area and provides facilities for personal, corporate, and air-taxi services. Access to the Fitchburg Municipal Airport is via Falulah Road, which provides indirect access to Route 2 (via Hamilton Street and Routes 12 and 13), and downtown Fitchburg (via Bemis Road, Route 12 and Summer Street). Improvements to the existing highway network would benefit the airport. In addition, commuter rail service is available at the North Leominster Train Station on Route 13, approximately one mile from the airport.

______SECTION 10 - BICYCLES AND PEDESTRIANS

BICYCLE TRAVEL

There has been a noticeable increase in the number of bicycles in population centers and on the highways. Bicycles have found a place on the highway network by default, as have pedestrians. Bicycles mixed with motor-vehicle traffic can be dangerous and create traffic delays. Safety problems have increased, as evidenced by the number of bicycle-automobile accidents. It was reported in the MassDOT crash files for the 10-year period of 2002-2012 that 250 bicycle related crashes occurred in the Montachusett Region, resulting in 176 injuries and no fatalities.

There is strong support from the regional communities for designated bikeways for recreational and commuting traffic. Individual bikeway projects are being implemented in some towns within the region. Construction of bikeways will encourage cycle commuting by providing direct, separate, and safe routes between communities. Also, increasing concern for air quality and energy conservation is leading to renewed interest in development of adequate facilities for bicycles throughout the Montachusett Region.

Bikeways are special routes established to facilitate the movement of bicycles as an energy efficient transportation and/or recreation mode of travel. There are three types of bikeways: bike paths, bike lanes, and bike routes. These have been categorized as Class I, II and III bikeways respectively. Class I bike paths are routes totally separated from automobile or pedestrian traffic. Class II bike lanes are lanes at the edge of streets marked for exclusive use of bicyclists. Class III bike routes are roadways that bikes share with cars.

Legally, a bicycle has been recognized as a vehicle in Massachusetts since 1973, subject to basically all the rights and responsibilities of an automobile. Bikeways are public rights-of-way, maintained by a responsible state or local agency, just as a municipality’s streets are owned and maintained by the municipality. Where the land for a proposed bike path is privately owned, an easement to permit public passage may be obtained, or the right-of-way may be purchased outright. Bikeways which parallel roads may be located within the existing publicly owned right-of-way, extending beyond the roadway itself.

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PEDESTRIAN ACCESS

Pedestrian activity is generally limited to small areas within town (i.e., schools, libraries, senior center, town hall, parks, etc.). Many of Shirley’s rural residential roads are narrow with no sidewalks. Sidewalks should be included in new roadway construction, roadway improvements, and residential and non-residential subdivision development. Along major arterial roadways, land should be secured for sidewalks or pathways as development occurs. Pedestrian actuated signals should be in place in densely populated areas where warranted to allow safer movement of pedestrians.

SAFE ROUTES TO SCHOOL

In 2009, MRPC conducted a Safe Routes to School analysis for the Shirley Middle School and the Lura White Elementary School. This study analyzed the major routes to school and the accessibly those routes provide for bicyclists and walkers. Sidewalk inventory, traffic counts that included speed data, crash data, and site walks were all included in the study.

The following recommendations resulted from this study:

1. Sidewalk Improvements

• Install sidewalks along all major routes (Benjamin Road, Center Road, Front Street, etc.).

• Install a crosswalk or another safe way for students to cross the Railroad tracks.

• Prevent delivery trucks from blocking sidewalks and crosswalks.

• Clear away vegetation to prevent cracks along sidewalks.

2. Traffic

• Speeding during school hours in school zones should continue to be monitored and enforced.

• Warning signs should be placed in the Town center area to warn all drivers of pedestrians, cyclists, and children. Placement of all regulatory and guidance signs should conform to guidelines established by Massachusetts Highway Department and the Manual on Uniform Traffic Control Devices (MUTCD).

3. Continue to work with the Safe Routes to School Program

By continuing efforts with the Safe Routes to School Program, Shirley will not only promote healthy alternatives for children and parents in their travel to and from school but will also educate students, parents and community members to the value of walking and bicycling for travel to and from school. This program aims to reduce congestion, air pollution, and traffic congestion near participating schools, while increasing health, safety, and physical activity of elementary and middle school students.

“Safe Routes to School uses five major strategies of implementation – the 5 E’s:

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• Education: Walking safety training for young children, classroom lessons and community presentations.

• Encouragement: Creating fun activities and events that draw children to walk to school.

• Enforcement: Enforcing existing laws to curb traffic violations that endanger young walkers on their way to school.

• Evaluation: Monitoring outcomes and documenting travel trends through data collection before and after Safe Routes to School activities.

• Engineering: Assessing and improving the built environment to increase safety.

By participating in this program Shirley could be eligible for engineering funds. Safe Routes to School efforts focus first on addressing and changing the elements of the environment that are most practical and affordable. In some districts, more generous programs have allowed significant new facilities such as trails or traffic signals to be installed. Some of the elements of the built environment to consider are described below.

• School drop-off and pick-up procedures – the congestion caused by cars, buses and other traffic arriving at schools can be hazardous to walkers.

• Crosswalks are often the simplest and least expensive signal to drivers and pedestrians about how an intersection works – and they can improve safety for both. Creating a new crosswalk in the right place can alleviate many of the daily aggravations between walkers and drivers.

• Speed warnings and reminders – Drivers are less likely to ignore school zones when there are new, clear and reflective signs. Signs that monitor speed making it easier to track speeds near schools.

• Curb painting – can improve safety by signaling to drivers where they can and cannot drive, drop or pick up children, or idle when parked.

• Removing snow and debris – Snowy and icy sidewalks pose a challenge to Massachusetts pedestrians. Most cities and towns hold property owners responsible for clearing sidewalks next to their property, yet sidewalks often remain blocked and dangerous days after a storm.” (www.walkboston.com)

______SECTION 11 – TRANSPORTATION GOALS, OBJECTIVES AND RECOMMENDATIONS

GOAL: • Construct, maintain and expand, where appropriate, a multimodal transportation network that is both safe and efficient within community boundaries that is consistent with the Town’s rural character.

OBJECTIVES: • Continue Proactive Town Participation with MRPC • Schedule Traffic Counts with MRPC 108

• Promote Traffic Calming Efforts • Construction and Rehabilitation of Sidewalks • Establishing a Regional Trail Network • Conduct a Comprehensive Circulation Study/Plan • Encourage the Commonwealth to further investigate the Structure, Function and Scour Ratings of Key Bridges • Conduct and Maintain an Inventory of Culverts • Strengthen Public Transportation • Create a Crash Monitoring System • Seek Local and Federal Funding for Eligible Roads

RECOMMENDATIONS:

1. Continue Proactive Town Participation with MRPC

Decisions related to project development, prioritization, funding, and scheduling are made through the metropolitan planning process and the MRPC serves as staff to the Metropolitan Planning Organization (MPO). Active involvement in the planning process, in which MRPC, the Montachusett Joint Transportation Committee (MJTC) and the Montachusett MPO, will ensure that issues and projects important to the Town are reviewed and acted upon. Therefore, Shirley should be actively engaged in MRPC activities.

Responsible Entity: Shirley Board of Selectmen and Planning Board are each responsible for designating a MJTC Shirley Representative, who should make every effort to attend monthly MJTC meetings and communicate with MRPC transportation staff.

2. Schedule Traffic Counts with MRPC

MRPC solicits from each community up to four traffic count locations per calendar year. The purpose is to monitor traffic patterns over time in order to anticipate the need for future improvements. Traffic counts are conducted by MRPC at no cost to the community. Shirley has taken advantage of this program in the past and should continue to do so in the future.

Responsible Entity: Board of Selectmen (BOS) is the responsible entity for forwarding traffic count requests to the MRPC. The BOS should solicit up to five potential locations for traffic counts from Town Boards and Departments (Department of Public Works, Police Department, Planning Board, etc.) on an annual basis.

3. Promote Traffic Calming Efforts

Conduct a study to see whether and where speeding problems exist. If there is a need, based on this study, then the use of traffic calming measures should be examined. Traffic calming measures include a range of strategies to slow traffic and deter the use of local residential roads for through traffic. Strategies might include one-way streets, neckdowns or narrow travel lanes, on-street parking, or speed humps. Those currently employed by the town are cul-de-sacs and dead-end streets. Traffic calming must be conducted in a comprehensive manner— not piecemeal—otherwise traffic will simply shift from one local street to another. Currently the Town is using signs in the school zone on Lancaster Road and Hospital Road to draw attention to the pedestrian crossing areas as well as using temporary radar trailers to help with speeding. Enforcement measures should be identified and put in place before the local streets become inundated by through traffic. The Town can also require developers 109

to implement traffic calming measures in new subdivisions.

Responsible Entity: Shirley Board of Selectmen with significant input from the Department of Public Works, Police Department, and Planning Board.

4. Sidewalks

Make the neighborhoods, especially the downtown, more pedestrian - friendly through the construction and rehabilitation of sidewalks. Current design standards for ADA compliance should be incorporated. This effort could, at least in part, be incorporated into a Comprehensive Circulation Study/Plan (see Recommendation #6). Potential financing for needed roadway and sidewalk repairs for Shirley’s local roads includes Complete Streets, Enhancement funds, public/private partnership projects, and Community Development Block Grant funds (in moderate-income neighborhoods).

Responsible Entity: Shirley Board of Selectmen, with significant input from the Department of Public Works, Police Department, and Planning Board.

5. Regional Trail Network

Work with neighboring communities and regional entities to establish a regional trail network that would ultimately link Shirley to various recreational opportunities outside of the Town (i.e., Nashua River Rail Trail). Currently there are limited bike and pedestrian trails within the community. The Town may wish to identify, prioritize and implement additional trail opportunities.

Responsible Entity: Shirley Board of Selectmen with significant input from the Department of Public Works, Conservation Commission, Open Space Committee, and Planning Board.

6. Comprehensive Circulation Study/Plan

The Town could undertake a Comprehensive Circulation Study/Plan of non-motorized users that could identify major travel routes, crosswalks, sidewalks, appropriate pavement markings and signage, etc. This plan should include major areas of concern for the Town (i.e., downtown, Town Hall, library, post office, schools, recreation facilities, etc.). In addition, this plan could identify links to the Town’s overall trail/bike network.

The Town could communicate with MRPC to investigate the possibility of conducting such a study under MRPC’s Unified Planning Work Program (UPWP) at no cost to the community. The UPWP for the Montachusett Metropolitan Planning Organization (MPO) is a financial programming tool developed annually as part of the federally certified transportation planning process. This document contains task descriptions of the transportation planning program of the MPO, with associated budget information and funding sources for the program year. The purpose of the UPWP is to ensure a comprehensive, cooperative, and continuing (3C) transportation planning process in the Leominster-Fitchburg Urbanized Area and the Montachusett Region. Other funding options to supplement such a project might include the Safe Routes to School Program. For more information, contact MassRIDES (www.commute.com).

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source for design guidelines might include MRPC’s District Local Technical Assistance (DLTA) Program which is funded by the Commonwealth. While funding for this program is currently available, future funding is not guaranteed.

Responsible Entity: Shirley Board of Selectmen in cooperation with the Planning Board/Department, Department of Public Works, and Police Department.

7. Bridges

Encourage the State to further investigate the structure, function, and scour ratings of key bridges in Shirley, and make these bridges a funding priority.

Responsible Entity: Shirley Board of Selectmen should initiate discussion with the Massachusetts Department of Transportation (MassDOT) District 3 office and encourage involvement from the Shirley Department of Public Works.

8. Culverts

Conduct and maintain an inventory of culverts within the community and create a program to clean, repair and update the structures as needed.

Responsible Entity: Shirley Department of Public Works.

9. Strengthen Public Transportation

Since the Town of Shirley is already on a commuter rail line, there is a need to get residents and visitors to and from the train station via sidewalks, bike lanes, and transit bus or shuttle. This would be particularly useful for those residents who are considered low income, elderly, or disabled. The Shirley Board of Selectmen could request assistance from the Montachusett Area Regional Transit Authority (MART). Discussion between Shirley and MART may include relevant/current MART programs and the explore use of the Senior Center van to transport seniors to and from the train station.

Responsible Entity: Shirley Board of Selectmen would be the appropriate board to contact MART.

10. Create a Crash Monitoring System

This system would monitor and analyze traffic crash data for all roads and intersections to determine the patterns and causes. When a location becomes severe enough, the Town should seek potential projects to address the identified issues at the locations. Where appropriate, state and federal funding assistance should be procured. Consider working with the local regional planning agency (MRPC), as well as the Massachusetts Department of Transportation (MassDOT) Highway Division Office, on projects and funding opportunities.

Responsible Entity: Shirley MJTC Representatives working with the Department of Public Works, Police Department, and reporting to the Shirley Board of Selectmen.

11. Pavement Management System

The Town needs to protect its investment in roads and other public facilities. Lack of routine maintenance investment results in needless deterioration and replacement, resulting in reduced utility and greater long-term 111

replacement costs. Where appropriate, the Town should seek local and federal funding assistance for eligible roads. The Town should consider working with MRPC and the Massachusetts Department of Transportation (MassDOT) Highway Division Office, on projects and funding opportunities.

Responsible Entity: Shirley MJTC Representatives working with the Department of Public Works, Police Department, and reporting to the Shirley Board of Selectmen.

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Map1 - Traffic Count Locations Map

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Map2 – Crash Data Map

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Map 3 – Federal Aid Eligible Roadways

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Map 4 – Pavement Conditions on Surveyed Roads

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Map 5 – Available Pavement Conditions on Luck Jurisdiction Fed-Aid Eligible Roads

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Map 6 – Bridges

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Land Use ______SECTION 1 - OVERVIEW

All communities have recognizable arrangements of residential, commercial, industrial, and institutional development, transportation features, vacant land, and water. These arrangements make up particular land use patterns that can be grouped into categories with common attributes. The presence of distinctive land use patterns contributes to that hard-to-define virtue known as “community character.” Shirley’s community character is composed of several faces, each with defining natural and built features: farms, large tracts of forested land, historic buildings, villages, institutional compounds, suburban neighborhoods, and some commercial development.

Communities regulate their land use policies through zoning: the practice of dividing land into mapped districts, each with prescribed use, density, and intensity regulations. Since zoning involves a multitude of policy choices and adoption by town meeting, it is inherently political. Development that predates zoning tends to be organic, whereas development that follows the adoption of zoning tends toward a more uniform appearance because the lots and structures have to meet specific dimensional requirements.

Single-family home development is the most common type of developed land use in Shirley. According to data from MassGIS (depicted in Table LU-1 on the next page), land devoted to residential uses account for about twelve percent of the town’s total acreage. Shirley has large amounts of open and forested land, amounting to over sixty percent of the total acreage. This can be observed from just about any road in town or in aerial photographs.

QUANTITATIVE ASSESSMENT

The existing land use within the Town as calculated through MRPC GIS is shown in Table LU-1. As indicated in the Table, the major land use within the Town of Shirley, 6,449.16 acres or 63.38 percent of total area, is classified as Forest. The next major land use within the Town of Shirley is Residential Uses with a total of 1,274.35 acres or 12.52 percent of total area. These Residential uses are broken down further as Low-Density Residential, 667.5 acres (6.56 percent); Medium- Density Residential, 170.17 acres (1.67 percent); Multi-Family Residential, 169.25 acres (1.66 percent); Very Low-Density Residential, 243.91 acres (2.4 percent); and High-Density Residential, 23.52 acres (0.23 percent).

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Table LU-1: Existing Land-Use Breakdown by percentage Land-Use Description Square Meters Acres Percentage Brush land/Successional 27,333.6 6.8 0.07% Cemetery 60,566.1 15.0 0.15% Commercial 117,961.2 29.1 0.29% Cropland 961,798.4 237.7 2.34% Forest 26,098,934.6 6,449.2 63.38% Forested Wetland 1,638,294.3 404.8 3.98% High Density Residential 95,199.2 23.5 0.23% Industrial 290,414.5 71.8 0.71% Junkyard 182,961.9 45.2 0.44% Low Density Residential 2,701,301.6 667.5 6.56% Medium Density Residential 688,654.5 170.2 1.67% Mining 229,080.5 56.6 0.56% Multi-Family Residential 684,929.1 169.2 1.66% Non-Forested Wetland 2,121,269.1 524.2 5.15% Nursery 21,754.1 5.4 0.05% Open Land 731,065.8 180.6 1.78% Participation Recreation 292,572.3 72.3 0.71% Pasture 584,121.4 144.3 1.42% Powerline/Utility 609,761.6 150.7 1.48% Transitional 292,665.4 72.3 0.71% Transportation 175,515.6 43.4 0.43% Urban Public/Institutional 844,720.8 208.7 2.05% Very Low Density Residential 987,063.5 243.9 2.40% Waste Disposal 247,251.4 61.1 0.60% Water 461,818.1 114.1 1.12% Water-Based Recreation 30,871.6 7.6 0.07% TOTAL 41,177,880.4 10,175.2 100.00% * Land use data (2005) was obtained from MassGIS and is the most current data available.

Map LUM-1 at the end of this chapter illustrates the land use categorized in Table LU-1. (This map is part of the Town’s Open Space and Recreation Plan – map to be inserted upon completion). Here it is possible to see the prevalence of forest dedicated lands, followed by the five different residential uses scattered within, as well as twenty other land use categories.

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______SECTION 2 - CONDITIONS AND DEVELOPMENT TRENDS

RESIDENTIAL – LOCAL AND REGIONAL TRENDS

Given Shirley’s rural history and large-lot zoning, it is not surprising that single-family homes make up the majority of the town’s existing development. Residential-oriented zoning occupies the majority of Shirley’s acreage after forest land. In these districts the maximum dimensions range from approximately two acres for Rural Residential (RR), to approximately 1/3 acre for Residential-3 (R-3). With fewer multi-family units, single-family homes comprise 65 percent of the housing stock, including old and new lots, resulting in less than one unit per acre. Single-family home development largely follows the historical road network but can also be found in newer subdivisions. Much of Shirley’s moderately dense housing is the result of historical (pre-zoning) development rather than present-day land use policy.

TOTAL HOUSING UNITS AND HOME OWNERSHIP

A comparison of total, occupied, and vacant housing units in Shirley and surrounding communities is shown in Table LU- 2. The number of housing units in Shirley increased by 271 units from 2000 to 2010, to 2,427 total units in 2010. Of these, 163 units, or 6.7 percent were vacant in 2010, an increase of 74 vacant units from the year 2000, in part reflecting increased numbers of foreclosures and also a substantial number of rental, seasonal, and recreational units. This vacancy rate is slightly lower than the vacancy rate of the surrounding communities, with the exceptions of Groton and Townsend.

Table LU-2: Housing Units by Community Housing Units 2000 Housing Units 2010 Town Occupied % Vacant % Total Occupied % Vacant % Total Shirley 2,067 95.9% 89 4.1% 2,156 2,264 93.3% 163 6.7% 2,427 Groton 3,268 96.3% 125 3.7% 3,393 3,753 94.1% 236 5.9% 3,989 Ayer 2,982 94.5% 172 5.5% 3,154 3,118 90.1% 344 9.9% 3,462 Harvard 1,809 81.3% 416 18.7% 2,225 1,893 92.5% 154 7.5% 2,047 Lancaster 2049 95.7% 92 4.3% 2141 2409 92.2% 205 7.8% 2614 Lunenburg 3,535 96.4% 133 3.6% 3,668 3,835 92.8% 298 7.2% 4,133 Townsend 3,110 97.7% 74 2.3% 3,184 3,240 95.7% 145 4.3% 3,385 Average 93.9% 6.0% 92.9% 7.0% Source: U.S. Census (2000 & 2010)

HOUSING STOCK INVENTORY

Tables LU-3 and LU-4 depict the status of housing units within the Town of Shirley as of the 2010 US Census. In 2010, there were 2,427 housing units within the Town, with occupied units comprising 93.3 percent (2,264 units) of the housing stock. Of the occupied housing units, 73.7 percent (1,669 units) were owner-occupied, while 26.3 percent (595 units) were renter-occupied. The average household size of the owner-occupied units was 2.71 persons per unit (ppu), while the average household size of renter-occupied units was smaller at 2.09 ppu.

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Table LU-3: Housing Stock Inventory by Occupancy HOUSING OCCUPANCY Number Percent Total housing units 2,427 100% Occupied housing units 2,264 93.3% Vacant housing units 163 6.7% For rent 67 2.8% Rented, not occupied 2 0.1% For sale only 34 1.4% Sold, not occupied 2 0.1% For seasonal, recreational, or occasional use 10 0.4% All other vacant 48 2.0% Homeowner vacancy rate (percent) 2.0% Rental vacancy rate (percent) 10.1% Source: 2010 U.S. Census

Table LU-4: Housing Stock Inventory by Tenure HOUSING TENURE Number Percent Occupied housing units 2,264 Owner-occupied housing units 1,669 73.7% Population in owner-occupied housing units 4,515 Average household size of owner-occupied units 2.71 Renter-occupied housing units 595 26.3% Population in renter-occupied housing units 1,242 Average household size of renter-occupied units 2.09 Source: 2010 U.S. Census

COMMERCIAL AND INDUSTRIAL

Approximately six percent of the town is zoned business or mixed-use, and approximately nine percent is zoned for industrial use. Densest development is found in the southern half of town. Parts of Shirley are located within the Devens Enterprise Zone, a special zone created by Chapter 498 of the Acts of 1993 for redevelopment of the former Fort Devens Army Base.

The Shirley Village Business District is located on Ayer Road, and the North Shirley Village Business District is located on Route 2A. In addition, mixed-use districts lie to the west on Route 2A and to the north side of 2A near the Ayer town line. Industrial development bisects Shirley Village, in an east-west direction along Leominster Road and Ayer Road. The Lancaster Road Commercial District is found at the southern border.

Due to its limited industrial development, Shirley has no severe environmental problems, but unplanned development and other pressures have left their mark. All of MassDEP hazardous waste sites in Shirley are listed as “adequately regulated” or “responsive actions achieved a level of no significant risk”.

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EDUCATIONAL AND RELIGIOUS

The Town of Shirley is a member the Ayer/Shirley Regional School District (ASRSD) and Nashoba Valley Technical School District. Within the ASRSD, the Lura A. White Elementary School and the Ayer Shirley Regional Middle School are both located within town limits, with land areas of 10.33 acres and 31.56 acres. respectively. Places of worship include the St. Anthony’s Catholic Church, Trinity Chapel Episcopal Church, United Church of Shirley, and the Holy Ghost Revival Outreach Ministries – with a combined total area of 4.63 acres.

PRIVATE, PUBLIC AND NON-PROFIT PARCELS FOR CONSERVATION AND RECREATION

Protected open space ownership in Shirley is approximately 80 percent public (federal, state, and municipal), and 20 percent private and non-profit. Conscious efforts have been made by the Town of Shirley to acquire open space in a way which produces larger and contiguous parcels. The aggregation of adjacent parcels enhances protection of natural resources by reducing fragmentation and widening corridors. Connecting parcels also creates opportunity for trail building within the town and region. Collaboration among many owners, whether public or private, has resulted in a large, protected open- space inventory. Municipal protected lands abut private lands and other public lands throughout the town. It will be important to continue to work with various public and private agencies to protect adjacent lands of conservation interest that are not yet permanently protected.

Included in this inventory are areas, both public and private, protected in perpetuity (2,552.21 acres), areas of limited protection (31.49 acres), and areas of unknown status (22.85 acres). The lands in this inventory are spread relatively evenly throughout Shirley, making them accessible to all populations. They are concentrated along the Squannacook and Nashua Rivers, wetlands, and well supply areas, helping protect those valuable water resources and wildlife habitats. Public and private recreation and conservation lands are protected in perpetuity if they have been dedicated to such uses by deed. Municipal properties may be protected if specified in funding for acquisition. Private land can be protected in perpetuity if there is a conservation restriction placed on the property. The Town has sixteen private land parcels (828.31 acres) protected in perpetuity.

Other open space may be protected by Shirley Zoning Regulations, the Wetlands Protection Bylaw, the Massachusetts Wetlands Protection Act, and the Massachusetts River Protection Act. Lands under special taxation programs, including Chapter 61 (521 acres), 61A (332 acres), or 61B (1014 acres), are actively managed by their owners for forestry, agricultural, or recreational use and are “protected but not in perpetuity.” The town has the right of first refusal should the landowner decide to sell and change use of the land. The Town should assess and prioritize Chapter 61 lands for possible future acquisition or other protection measures, such as an Agricultural Protection Restriction or a Conservation Restriction. When abutting other conservation areas, such lands may enhance the value of current conservation and recreation land by providing greater ecological services.

Table LU-5 below shows the ownership of the protected lands by acreage.

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Table LU-5: Protected Private/Public/Non-profit Parcels Ownership Acreage Private 782.15 Public 723.46 Non-Profit 802.68 TOTAL 2308.29 Source: Shirley OSRC Plan 2014

Tables LU-6 and LU-7 below shows protected lands as depicted in map LUM-2 at the end of this chapter (This map is part of the Town’s Open Space and Recreation Plan – map to be inserted upon completion). Its respective lands – the private and public protected lands are broken down further in the tables to show each parcel’s acreage.

Table LU-6: Protected Private/Non-profit Parcels Name Acreage Harriet Lyon Conservation 13.64 Valley Farm Conservation 177.57 Farandnear Conservation 80.9 Birchwood Hills Conservation 92.8 Benjamin Estates Conservation 6.3 Hill Lane Conservation 2.93 Colburn Conservation 6.35 Holdenwood Trust Conservation 102.35 Executive Estates Conservation 15.3 Longley Trace Conservation 10 Lakeview Subdivision Conservation 18.87 The Village at Phoenix Pond 13.53 Hospital Road Parcel 4.91 Shirley Rod and Gun Conservation 143.6 Rich Tree Farm / Shirley Water District 93.1 TOTAL 782.15 Source: Shirley OSRC Plan 2014

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Table LU-7: Protected Public/Non-profit Parcels Cont’d - Table LU-7: Protected Public/Non-profit Parcels Organization Acreage Old Town Line Conservation Area 16.56 Spruce Swamp/Shirley Center 11.62 Going Road 23.29 Holden Road Conservation 56.23 Benjamin Hill Park 11.85 Thompson Conservation Area: 15.7 Lura A. White School Playfields 14.08 Harriet Lyon Bird Sanctuary 7.83 Senior Center Playfields 4.43 Squannacook Conservation 12.5 Whitely Park 1.54 Crow Island Conservation Area 2.1 Shirley Center Common 2.43 Fredonian Park and Nature Center 7 Highway Department Gravel Pit 28.09 Rust Nature Conservation Area 38.36 Oxbow National Wildlife Refuge /U.S. Fish 38.3 J&A Conservation Area: 2.5 Squannacook Wildlife Management 393 Mitchell Conservation Area 1.02 Mulpus Brook Wildlife Management 58.98 Nashua River Frontage/Walker Road 2.18 Lawton Road 15.21 Rich Tree Farm Conservation Area 111.92 Walker Road, Nashua River Front 29.2 Ronchetti Conservation Area 95.2 Bonney Sheahan Parcel 75.6 Hunting Hill Conservation Area 30.9 Shirley Center Cemetery 5.73 Townsend Road Conservation Area 54.81 Village Cemetery 7.53 Pumpkin Brook Link Conservation Area 140.7 Groton Road Land 8.86 Longley Acres Conservation Area 73.24 Leominster Road Landfill 47 Sullivan Donation 2.42 MCI Shirley Greenway 21 Dow Conservation Area 16.03 TOTAL 1526.14 Benjamin Hill Conservation Area 41.2 Source: Shirley OSRP 2014

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AGRICULTURE

Throughout Shirley’s history, agriculture was the mainstay of the economy, however, a clothing mill was built on the Squannacook River ca. 1739, as well as saw mills and grist mills on Catacunemaug Brook in ca. 1748. Early roads followed the waterways, connecting the mill sites with other parts of the territory. Squannacook Road followed the meandering Squannacook River, while Great Road followed the course of Mulpus Brook where grist and sawmills, as well as a forge, were located from the mid-to late eighteenth century on. Leominster Road, which passed through the southern part of the town, connected Ayer to the east with Leominster to the west. Shirley Center was the focus of farming and civic activity.

There are prime farmland soils throughout Shirley. Most areas of prime farmland overlay coarse glacial deposit and till bedrock zones. As agriculture shifted westward from New England, many farm fields were abandoned and slowly became reforested. Lands under special taxation programs are presently managed by their owners for forestry (Chapter 61), agriculture (Chapter 61 A), or recreation (Chapter 61B).

Table LU-8 below shows, about 1,703.37 acres in Shirley are under Chapter 61 agreements. This means the land is taxed at its forestry, agricultural, or recreational value, not fair market value. The intent of the state laws that authorize these agreements is to encourage productive and extensive land uses. In total, the Chapter 61 lands account for 1703 acres or 16.7 percent of the total land area of Shirley.

Table LU-8: Lands under Chapter 61 Owner Acreage Chapter 61A: Agriculture Lands 309.55 Chapter 61B: Recreation Lands 898.71 Chapter 61: Forest Lands 495.11 TOTAL 1,703.37 Source: Shirley OSR Plan 2014

______SECTION 3 - WATER SUPPLY AND SEWER SYSTEM ANALYSIS

Shirley is part of the Nashua River watershed. The Nashua River watershed covers an area of 538 square miles within 31 communities in Massachusetts and New Hampshire. Four sub-basins are within Shirley. Its rivers, streams, and aquifers connect Shirley to neighboring towns. Every neighboring town sits over the same high and medium-yield aquifers that run through Shirley.

Shirley’s public water supply is operated by the Shirley Water District. The water system provides potable water to approximately 60 percent of the Town through a distribution network supplied by three groundwater wells, two reservoirs, and one standpipe. The three groundwater supply wells are the Catacunemaug, Walker, and Patterson Road wells. The Patterson Road Well supplies approximately 70 percent of all public water for the town.

The supply system provides water primarily to the southern part of town, extending as far east as Patterson Road and as far north as Great Road. The remainder of the town is served by private well water. The district consumption rate rose 9 percent from 1996 to 2002. As Shirley’s population continues to grow, the need to continue to protect the town’s valuable water supply will be critical. The construction of a municipal sewer system was completed in 2004. The sewer line alleviated issues of groundwater contamination from septic leachate.

One third of the town is served by the sewer system. This includes the Village area, Center Road, Brown Road, a portion of Walker Road and Hazen Road, Parker Road, Little Turnpike Road and portion of Great Road (234 Great Road to 154 Great Road). The remainder of town, including the aquifer recharge area, relies on septic systems. (At the end of this Chapter, Maps LUM-3,4 and 5 depict Shirley’s water resources within the context of the surrounding system of basins, the zones of constriction to public-supply wells, and the existing built infrastructure on top of the water resources. These maps are part of the Town’s Open Space and Recreation Plan – map to be inserted upon completion).

______SECTION 4 - EXISTING LAND USE REGULATIONS

ZONING DISTRICTS AND ANALYSIS

Table LU-9 below depicts the existing zoning districts that comprise Shirley’s zoning bylaw. Currently the Town of Shirley has one industrial zone; three residential zones; four mixed-use zones, one commercial zone, and one Rural/Residential zone. The town’s bylaw also allows for overlay districts for Flood Plains (FP), and Water Supply and Wellhead Protection (Z-1 and Z-2).

Table LU-9: Zoning/Overlay Districts within Shirley Rural Residential (R-R) Residential-1 (R-1)

Residential-2 (R-2)

Residential-3 (R-3)

Shirley Village Business District (SV)

North Shirley Village Business District (NSV)

Great Road West Mixed-Use District (GRW)

Mixed-Use District (MU)

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Lancaster Road Commercial (LRC)

Industrial (I)

Flood Plain (FP)

Water Supply and Wellhead Protection (Z1)

Water Supply and Wellhead Protection (Z2)

Source: Shirley Protective Zoning Bylaws 2015

The Rural Residential (R-R) district is a very low-density residential use district for single-family and two- family homes, both allowed by right, together with agricultural and forestry uses, which are permitted throughout the town. The Planning Board has authority to grant special permits for creative site planning options such as Low-Impact Development. The major distinguishing feature of the R-R district is its dimensional requirements. The minimum lot size is eighty thousand square feet (two-acre zoning, in builder’s acres), and the minimum frontage is 225 feet. These create an extremely low-density residential development pattern.

The Residential (R-1) district comprises most of Shirley, and allows for: one-family dwelling (or two- family, provided that the building’s exterior appearance is kept unchanged); boarding use (up to four lodgers); professional office or business workshop (by right); as well as accessory, cemetery, hospital, kennel, bed and breakfast, and home retail (with special permit).

The Residential (R-2) district aims to provide for traditional residential neighborhoods comprised primarily of single-family and two-family homes in areas with an established, moderate-density development pattern near goods and services and the Town’s main roads. It also allows for garden/orchard/agriculture/conservation, boarding use (up to four lodgers), professional office or business workshop (by right); as well as residential accessory, residential infill, hospital, kennel, bed and breakfast, home retail, and assisted living (with special permit).

The Residential (R-3) district aims to preserve and reinforce Shirley’s traditionally designed, compact neighborhoods, where the established development pattern consists of a mix of moderate-density residential uses near Shirley Village. It also allows for garden/orchard/agriculture/conservation, boarding use (up to four lodgers), professional office or business workshop (by right); as well as multi-family dwellings, residential accessory, residential infill, hospital, kennel, bed and breakfast, home retail, and assisted living (with special permit).

The Shirley Village Business District (SV) aims to reinforce and enhance Shirley Village as the town’s primary commercial center, to develop and sustain a vital local economy, to provide goods and services that meet the needs of local residents and workers, and to provide a traditional village that encourages people to live and work in Shirley. The SV is a mixed-use district that allows commercial uses by right, such as restaurants, banking, retail, makers’ shops; as well as multi-family dwellings, recreation, drive- through, laundry/dry cleaning, and supermarket/groceries (with special permit).

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The North Shirley Village Business District (NSV) aims to encourage a limited range of small-scale, low- impact commercial uses that serve a predominantly local clientele, to protect an environmentally sensitive area, to avoid the appearance and hazards of a strip commercial area, to discourage “big-box” development, and to encourage small businesses to locate and stay in Shirley. The NSV is a mixed-use district that allows single family and two family residential construction by special permit and commercial uses by right, such as restaurants, banking, retail, makers’ shops; as well as, recreation, drive-through, car sales, contractor’s yard, gas stations, dry cleaning, and supermarket/groceries (with special permit).

The Great Road West Mixed-Use District (GRW) aims to encourage the development of a small, economically viable village node with low-impact uses, to provide a limited mix of goods and services to local residents, and to protect an environmentally sensitive area. The GRW is a mixed-use district that allows the traditional commercial uses and/or residential in addition to that activity) by right, such as restaurants, banking, retail, makers’ shops; as well as recreation, drive-through, car sales, contractor’s yard, gas stations, dry cleaning, and supermarket/groceries (with special permit).

The purposes of the Mixed-Use District (MU) are as follows: to allow a diversity of land uses in close proximity, within a limited area; to promote a balance of land uses; to facilitate development proposals responsive to current and future market conditions; to facilitate integrated physical design; and to encourage interaction among activities located within the District; to promote and carefully expand controlled development of a small, economically viable commercial area with low-impact uses; to provide a limited mix of goods and services to local residents; and to protect any open space, residential and environmentally sensitive areas. The MU is located on Great Road (Rt. 2A) near the Ayer town line and is subject to the overlay by-laws of FP, Z-1 and Z-2. Overall, its land uses follow the regulations for GRW.

The Lancaster Road Commercial (LRC) seeks to provide for a broad mix of retail, service and light industrial uses in the southern end of town, including businesses that serve highway travelers and commuters. The LRC district allows retail, office space, restaurants, banking, makers’ shops, and personal services by right; as well as, hoteling, car sales, veterinary, parking lot, laundry/dry cleaning, light industrial, groceries/supermarket, gas stations, and telecommunication towers (with special permit).

The Industrial (I) district provides for industrial manufacturing uses. The Zoning Bylaw allows for research lab, light manufacturing, enclosed manufacturing, exterior storage (provided that the exterior storage is screened from view), beverage bottling or food packaging (except meat and fish processing), storage, commercial parking, office space. automotive services/storage, public utility, and makers’ shops by right; and commercial sports or recreation facility, contractor’s yard, car sales, telecommunication towers, and assembly/fabrication/processing /printing/wholesaling /distribution/warehousing/ interior storage by special permitting.

The map on the next page brings the most recent update of the zoning districts.

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SMART GROWTH (SUSTAINABLE DEVELOPMENT)

Smart Growth (or Sustainable Development) is a theory of land development that accepts that growth and development will continue to occur, and so seeks to direct that growth in an intentional, comprehensive way. Its proponents include urban planners, architects, developers, community activists, and historic preservationists. It also advocates compact, transit- oriented, walkable, bicycle-friendly land use, including neighborhood schools, complete streets, and mixed-use development with a range of housing choices.

Smart Growth emphasizes mixing land uses, increases the availability of a range of housing types in neighborhoods, takes advantage of compact designs, and fosters distinctive and attractive communities. It preserves open space, farmland natural beauty and critical environmental areas, strengthens existing communities, provides a variety of transportation choices, makes development decisions predictable, fair and cost effective and encourages community and stakeholder collaboration in development decisions.

Smart Growth is not “no-growth”, as growth is needed to keep a place economically and culturally vibrant. This means that some land will be needed to accommodate a place’s growth needs, and among the most common Smart Growth techniques, OSRD is a direct tool.

Table LU-10 compares Shirley’s zoning districts with Smart Growth practices and principles and shows that the GRW district conforms to the Smart Growth model of development.

Table LU-10: Shirley Districts that Correlate with Smart Growth Principles Mixed Mixed Use Open Space Use Multi-Family Retail Sales Restaurant Industrial Use w/in on a Lot Preservation District a building (R-R) SP SP N N N N Y (R-1) N N N N N N Y (R-2) N SP N N N N Y (R-3) SP SP N N N N Y (SV) SP Y Y N Y Y N (NSV) Y Y Y Y Y Y N (GRW) Y Y Y Y Y Y Y (MU) Y Y Y Y Y Y N (LRC) N Y Y Y SP SP N (I) N N N Y SP SP N Source: Shirley Zoning Bylaw 2015 and Massachusetts Smart Growth Toolkit

PROPOSED COMPREHENSIVE LAND USE REFORM AND PARTNERSHIP ACT (CLURPA)

Another parameter that Shirley can benefit from seeking is the Comprehensive Land Use Reform and Partnership Act (CLURPA). The CLURPA is a proposed bill in the process of further consideration of the legislature that would allow communities to become a “certified plan community” who could benefit from additional zoning tools as well as some priority funding from the state. 131

To become a certified plan community, a municipality has to prepare a community land use plan with certain specified requirements. After completion, these plans will need to be certified by the community’s regional planning agency. Once certified, the plan needs to be adopted by the municipality to become a certified plan community. Certified plan communities will be able to limit the number of new housing units (within certain parameters) in their zoning bylaws/ordinances without being declared exclusionary or against public policy. These communities will be able to require minimum lot areas of two or more acres for single-family developments on farmland, forestland or other land of environmental resource and not be deemed exclusionary.

Also, the state will give priority consideration to infrastructure improvements identified in the plan along with capital spending that will affect land use and development within community. CLURPA modernizes many planning statutes in M.G.L. Chapters 40 and 41 with the potential to impact the entire state. In addition, the proposed legislation would allow municipalities to opt-in to a higher performance standard and receive new tools for directing development.

The higher standard is based on the state’s goals for housing, economic development, renewable energy, open space, and water resources. Regional Planning Agencies are responsible for certifying that the goals are met. The bill seeks to fairly balance the interests of municipalities, developers, and the general public. This compromise includes many tradeoffs, but on a whole, it significantly advances sustainable planning and development in Massachusetts.

In terms of Shirley’s compliance with CLURPA it is possible to see that there is progress being made especially in what concerns the Economic Development and Housing categories of the act. However, there is a lot to do in order to address the remaining three categories (Open Space Protection, Water Management and Energy Management), as most criteria from these chapters are not being met.

Table LU-11 shows in detail what is missing in terms of Housing where, if the Low Impact Development Bylaw in Shirley were to be shifted from ‘Special Permit’ to ‘by right’, it could also count for the Open Space protection category.

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Table LU-11: Shirley Status to CLURPA Criteria regarding Economic Development

Type of Land use Shirley Zoning Codes Category Has Zone that allows Commercial Y (SV, NSV, GRW, MU, and/or Industrial or Mixed Use By LRC) right (BR) Economic Development Area has Transportation and Y Infrastructure - Eligible Location

Has Zone that allows 1/4 acres (10,890 s.f.) are single-family Y (SV) homes BR

Has zone that allows at least 12 unit multifamily on 1 acre (43,560 Y s.f.) BR

Total number of Year-Round 2,338 Housing Units (ACS 2014)

Housing Target Number - 5% of 117 Total Housing Units Housing

Can accommodate Housing target Info not available number (HTN)

Lacks adequate water supply or Wastewater Infrastructure for Info not available waiver

Has zones that allow Open Space Y Residential Design (OSRD)

40R N

Is OSRD BR? N

Minimum for OSRD at least 5 N units not more Open Space Protection Requires minimum lot size of 40,000 s.f. (approximately 1 acre) Y for SF home

Has LID bylaw/ordinance to Water require LID use for disruption of Y Management 1+ acres

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Zone w/ BR uses of Renewable/Alternative Energy- Y Generating facilities Zone w/ BR uses of renewable/alternative energy R&D N Energy Management facilities

Zone with BR Uses of

renewable/alternative energy N manufacturing facilities

Source: Montachusett Regional Planning Commission Strategic Framework 2010

OVERLAY DISTRICTS

Flood Plain District (FP). The purposes of the Flood Plain District are to protect the public health, safety, and general welfare; to protect human life and property from the hazards of periodic flooding; to preserve the natural flood control characteristics and the flood storage capacity of the flood plain; and to preserve and maintain the ground water table and water recharge areas within the flood plain. The Flood Plain District is established as an overlay district to all other districts. All development in the district, including structural and non-structural activities, whether permitted by right or by special permit must be in compliance with Chapter 131, Section 40 of the Massachusetts General Laws.

Water Supply and Wellhead Protection Overlay District (Z-1 and Z-2). The purpose of the Water Supply and Wellhead Protection Overlay District is to protect, preserve, and maintain present and potential sources of groundwater supply within the Town for public health, safety, and welfare. The general boundaries of the Water Supply and Wellhead Protection District are shown as Zone 1 and 2 to indicate the different protection areas on the map entitled “Town of Shirley, MA, Zoning Map – Overlay Districts”.

• Zone 1: Present and proposed public well sites, together with a surrounding protective circle of 800 feet in radius (measured horizontally) around the Catacunemaug Well, and 1,000 feet in radius (measured horizontally) around the Patterson Well and Walker Road, Squannacook, Cook Farm, and Bow Brook/Trophet Well sites, comprising all or part of the zones of influence.

• Zone 2: Aquifer and primary recharge areas supplying the Patterson and Catacunemaug Wells, and identified future well sites. These primary recharge areas have been determined by hydrological study of the geology of the area and are intended to include the aquifer recharge areas which contribute water to the wells under the most severe pumping and recharge conditions that can be realistically anticipated (180 days of continuous pumping at safe yield with no recharge from precipitation) as defined in Massachusetts Department of Environmental Protection (“DEP”) regulation 10 CMR 22.00.

The map below shows the Overlay Districts according to the most recent update from the zoning bylaws:

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PROVISIONS AND REQUIREMENTS

Off-Street Parking. Shirley normally requires parking spaces to be located on the same lot as the building or use they serve. However, the Planning Board may grant a special permit to allow use of parking facilities not on the same lot, provided that the Board determines, in consultation with the Building Inspector and Police Department, that proper provision is made to insure pedestrian and traffic safety and that the purposes of these Off-Street Parking Requirements are served. Some examples of parking requirements in Shirley include:

Table LU-12: Off-Street Parking Requirements RESIDENTIAL USES REQUIRED NUMBER OF SPACES Detached single-family/two-family 2 per unit Multi-family dwelling up to 2 per unit Assisted living facility .5 per unit/1 per employee Nursing home 1 per 6 patients/1 per 2 employees Congregate living residence 1 per unit Senior residence (over-55) unit 1.5 per unit Accessory dwelling unit 1 per unit/ x per principal dwelling Home occupation pending on occupation + dwelling COMMERCIAL/INSTITUTIONAL USES REQUIRED NUMBER OF SPACES Bank, financial institution 1 per 250 GFA (ground floor area) sq. feet Retail store 3 per 1000 GFA sq. feet Service establishment 1 per 250 GFA sq. feet Business office 1 per 400 GFA sq. feet Restaurant, bar 1 per 3 seats/1 per 2 employees Hotel or motel 1 per room/1 per 3 employees Religious activity centers 1 per 3 seats Museum 1 per 80 public floor area sq. feet Other places of public assembly 1 per 5 occupants Theatre, cinema 1 per 3 seats Library 1 per 1000 GFA sq. feet Hospital 1 each 2 beds/1 each 2 employees Funeral home 1 per 60 public area sq. feet Bowling alley 4 per alley Other commercial uses 1 per 3 employees/1 per 300 GFA sq. feet INDUSTRIAL USES REQUIRED NUMBER OF SPACES Sales office w/out retail max. 1 per 200 GFA sq. feet Lab for industrial/scientific research max. 1 per 1000 GFA sq. feet Wholesale/warehouse max. 1 per 300 GFA sq. feet Light Industrial 1 per 500 GFA sq. feet Printing/publishing Public utility building/infrastructure Source: Shirley Zoning By-laws 2015

Site Plan Review. Developments of commercial, industrial, institutional, mixed-use or multi-family uses, together with their associated outdoor areas for vehicular movement and parking, accommodate varying degrees of open and continuous 136

use by the general public. Due to their physical and operational characteristics, these developments may affect neighboring properties and adjacent sidewalks and streets. It is in the Town of Shirley’s interest to promote functional and aesthetic design, construction, and maintenance of such developments and to minimize any harmful effects on surrounding areas. The intent of site plan review is to regulate rather than prohibit uses through reasonable conditions that may be required by the Planning Board concerning design and location of buildings, signs, open space, landscaping, parking areas, access and egress, drainage, sewage, water supply and fire safety. A site plan granted by the Planning Board in accordance with the standards of the SPR bylaw shall be required for the following uses:

• All new construction of commercial, industrial, institutional, multi-family, municipal or other nonresidential uses.

• Any use requiring a Special Permit, except for Hammerhead Lots, Accessory Apartments, Shared Residential Driveway, Low Impact Development, Soil/Gravel Removal, and Infill Residential Uses.

• All commercial or industrial additions, alterations or reconstruction exceeding 600 gross square feet or that would require a total of ten (10) or more parking spaces to serve both existing and new development, or any change of use which would require ten (10) or more additional parking spaces based only on new development.

• Construction or creation of any new parking lot or the expansion, or redesign of an existing parking lot with ten (10) or more parking spaces, used or to be used for any non-residential purposes.

• Conversion of an existing single-family dwelling to a multi-family dwelling of three units or more, home specialty retail, residential uses in mixed-use building, and a boarding house with more than one boarder.

Dimensional Standards. In order to keep the standard of each zoning district, The Shirley Zoning Bylaws regulate the following dimensions: Height, Lot Area Computation, Frontage, Minimum Lot Width, Building Setback; Modifications, Accessory Buildings, Corner Lot Road Visibility, and Principal Buildings. These standards are summarized in the Table LU-13 below. Table LU-13: Dimensional Standards* Min. Area Frontage Lot Front Side Rear Max. Shirley Districts (sq. ft.) (ft.) Width Setback Setback Setback Height

Rural Residential (R-R) 80K/100K 225 225 50 50 50 35

Residential-1 (R-1) 40K/60K 175 175 40 17/23 50 35

Residential-2 (R-2) 30K/45K 150 150 30 15/20 40 35

Residential-3 (R-3) 15K/19K 100 100 25 15/20 30 35

Shirley Village Business 10K/15K 60 60 0/20 N/A 15 45 District (SV) North Shirley Village 20K/25K 100 40 20/40 15/30 50 35 Business District (NSV)

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Great Road West Mixed- 20K/30K/40K 100 100 20/40 15/30 50 35 Use District (GRW)

Mixed-Use District (MU) 20K/30K/40K 100 100 20/40 15/30 50 35

Lancaster Road 20K 100 100 20/40 15/30 25 40 Commercial (LRC)

Industrial (I) 60K 100 100 30 15 50 45

Source: Shirley Zoning Bylaw 2015 *= different dimensions within the same category reflect different housing types allowed in the same district (i.e. single-family, two families, multi-family homes)

Other Tools

Table LU-14 shows what Shirley’s land use planning can do, following the best practices summarized by the 2010 Montachusett Regional Planning Commission Strategic Framework. The list of what Shirley is doing and what can still be done to achieve an optimal level of land use planning can serve as a ‘road map’ for compliance with the best practices guide.

Although Shirley is already using many of these best practices, the Town can still implement the use of planning and zoning tools such as Community Preservation Act (CPA), Transfer of Development Rights (TDR), and Agricultural Protection Zoning.

Table LU-14: Inventory of Innovative Planning and Zoning Tools Rate of Development yes Cluster/OSRD/Flexible Development yes Wind Energy no Green Communities Designation* yes LID (Low Impact Development) yes Accessory Apartments yes Scenic Roads Bylaws no Earth Removal yes Signs yes (CPA) Community Preservation Act no (TDR) Transfer of Development Rights no Form Based Codes no 43D yes Water Supply/ Wetland Protection yes Site Plan Review for Large Projects yes Agricultural Protection Zoning no Village/ Downtown Area yes Mixed-Use by Right yes Source: MRPC Strategic Framework

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______SECTION 5 -DEVELOPMENT POTENTIAL AND BUILD OUT ANALYSIS

BUILD-OUT AND DEVELOPMENT IMPACT STUDY METHODOLOGY AND RESULTING MAPS

An environmental and development characteristics analysis involves two phases: mapping followed by quantification of development. In order to reach accurate results, it is crucial to have the necessary geographical data as well as skillful Geographic Information Systems (GIS) staff to perform the initial phase of the analysis. To conduct the analysis, current parcel data from the Town of Shirley was utilized, as well as current Zoning. Additionally, environmental and land use data was provided by MassGIS, the state GIS agency.

Environmental data is a key component of the development potential analysis. Certain environmental chapters are considered inappropriate for development and can be defined as “Absolute Constraints” or “Partial Constraints” for the purposes of the development potential analysis. Absolute constraints are defined as water (as coded by Land use data), 100 Foot DEP (Department of Environmental Protection), RPA (River Protection Act), Buffers, slopes greater than 26 percent, and Permanently Protected Open Space. Partial Constraints are defined as FEMA 100 and 500-year Flood Zones as well as DEP Wetlands. Absolute constraints are completely unsuitable for development, while partial constraints could be developed if pursued in an appropriate manner.

Once the constraints have been determined and defined, the next step is to identify lands that have already been developed. Based on MassGIS Land use data, the categories that are included in “Developed Lands” are active/passive/water recreation, residential, commercial, industrial, transportation, waste disposal, power lines, cemeteries, and urban public/institutional.

The final category that is determined is “Future Developable Lands”.GIS tools are utilized to determine what has potential for development, taking into account all of the constraints and currently developed lands. The result is a new category indicating lands that are developable without any existing development or constraints.

The development potential map on the next page depicts all of these data categories (Absolute Constraints, Partial Constraints, Developed Lands, and Future Developable Lands) and provides information for local officials to identify the location and current zoning of future developable lands. GIS tools offer additional useful information by calculating the acreage for each category by zoning district. The data provided by the GIS phase of the build-out analysis is then given to the planning staff or planning board who further investigates the future developable lands within the given zoning districts and provides recommendations for development opportunities.

ENVIRONMENTAL AND DEVELOPMENT POTENTIAL BY ZONING DISTRICT

Table LU-15 displays information on existing conditions in Shirley quantifying acres of land by zoning district for three categories: Undevelopable, Developed, and Developable Land. More than 46 percent of the land in Shirley is available for residential, commercial and/or industrial development; approximately 35 percent is undevelopable and 19 percent is already developed. The vast majority of developable land is within the residential districts - the R1 District has the most developable land at 2,896 acres followed by the Rural Residential District (985 acres) and the R2 District (327 acres) and the R3 District (180).

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About 22 percent of the Industrial District is undevelopable, 35 percent (89 acres) has been developed, and 42 percent (107 acres) is developable. Developable land in additional districts are 55 acres in the Great Road West Mixed Use District, 40 acres in the Lancaster Road Commercial District, 15 acres in the North Shirley Village Business District, and just a little over 6 acres in the Shirley Village Business District, which is largely built out, with more than 82 percent already developed and about 4percent undevelopable.

Besides having ample developable land for residential development, the amount of developable land when looking at the non-residential and mixed-use districts in their entirety is about 224 acres, more than that occupied by existing development (164 acres) and considerably more than undevelopable acres (69 acres). There does seem to be some land, if used efficiently, which could be utilized to promote economic development. However, as discussed in the following section, the Town should work to ensure that appropriate design guidelines are in place to retain community character along with adequate performance standards to protect the environment in these areas.

Table LU-15 shows Shirley’s development potential with zoning and acreage. The maps that follow show the development potential in the town.

Table LU-15: Environmental and Development Characteristics by Zoning District Undevelopable Zoning District Acres (Absolute Developed Acres Developable Acres Constraints) Great Rd-West Mixed Use Label 1 0.02 5.35 55.38 Sub-Total All Great Rd-West Mixed Use 0.02 5.35 55.38 Percent .03% 8.81% 91.16%

Industrial District Label 1 3.27 24.45 4.05 Industrial District Label 2 0.09 3.75 42.15 Industrial District Label 3 6.03 6.91 1.63 Industrial District Label 4 6.42 18.77 25.23 Industrial District Label 5 17.00 8.5 8.38 Industrial District Label 6 11.18 10.37 21.6 Industrial District Label 7 12.46 16.31 3.48 Sub-Total All Industrial District 56.45 89.06 106.52 Percent 22.4% 35.34% 42.26%

Lancaster Road Commercial District Label 0.71 11.1 40.37 1 on Map Sub-Total All Lancaster Road 0.71 11.1 40.37 Commercial District Percent 1.36% 21.27% 77.37%

North Shirley Village Business District 10.16 18.73 14.98 Label 1 Sub-Total All North Shirley Village 10.16 18.73 14.98 Business Districts Percent 23.16% 42.69% 34.15%

R 1 District Label 1 185.68 49.86 213.12 R 1 District Label 2 5.40 5.06 65.92 R1 District Label 3 3.01 27.32 24.75 R1 District Label 4 943.74 537.11 2080.14 140

R1 District Label 5 221.98 322.95 512.46 Sub-Total All R1 District 1,359.81 942.3 2,896.39 Percent 26.16% 18.13% 55.71%

R2 District Label 1 21.68 71.86 110.17 R2 District Label 2 9.81 66.69 128.27 R2 District Label 3 54.53 104.23 88.93 Sub-Total All R2 District 86.02 242.78 327.37 Percent 13.12% 37% 49.88%

R3 District Label 1 17.27 120.42 102.03 R3 District Label 2 35.63 114.46 71.13 R3 District Label 3 0.0 18.08 6.95 Sub-Total All R3 District 52.9 252.96 180.11 Percent 10.89% 52.05% 37.06%

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______SECTION 6 – LAND USE GOALS, OBJECTIVES AND RECOMMENDATIONS

GOAL:

• Preserve those chapters and features that contribute to Shirley’s New England town character as a residential community while promoting economic development and a high standard of environmental quality.

OBJECTIVES:

• Promote a sense of community. • Preserve natural and man-made features that contribute to Shirley’s character such as open fields, woodlands, and ponds and streams that also help to enhance habitat protection, protect the quality of the Town’s water resources, and link large tracts of open space together. • Support commercial and industrial growth that will fit in Shirley and contribute to the community’s quality of life and fiscal stability. • Ensure that housing opportunities are available for a broad range of income levels and household types. • Maintain Shirley’s rural and historic chapters.

RECOMMENDATIONS:

1. Facilitate the Existing Permitting Process: The Town should put together a comprehensive development permitting guidebook to assist all customers with projects of any type and scale or those who need to obtain any permit; and develop separate handouts for more substantive processes that require additional detail or guidance. One potential funding source is MRPC’s District Local Technical Assistance Program (DLTA) funded by the Commonwealth of Massachusetts. While there is no guarantee that the Commonwealth of Massachusetts will fund the DLTA program from year to year, streamlining the permitting process has been an eligible project in the past. In fact, the Town of Shirley drafted such a document with MRPC DLTA assistance knowing that it would be a valuable tool for anyone pursuing residential, commercial or industrial development or common licenses.

Responsible Entity: Town Administrator/Board of Selectmen

2. Review/Analyze Current Zoning Bylaws/Ordinances: Determine the adequacy of the current bylaws, etc. for accommodating desired land use and development within the community. The overall intent could be to examine the use and dimensions to identify internal inconsistencies and to make recommendations for removing zoning impediments.

Responsible Entity: Planning Board

3. Identify New Areas or Expansion of Existing Areas Suitable for Commercial/Industrial Development and 144

Conduct Extensive Public Outreach to Ensure Public Buy In. This pertains to zoning recommendations listed in the Economic Development Chapter Zoning changes require significant public outreach. In addition to open meetings, public hearings, etc. Shirley should consider enhancing public outreach through a charrette. A charrette is a design focused public meeting where boards, committees, departments and the public get together to brainstorm ideas. By holding a charrette all the stakeholders have the opportunity to voice their opinions and concerns, public officials have the opportunity to respond and the possibilities of reaching a consensus are increased. MRPC’s DLTA program could be a way to provide support for a charrette.

Responsible Entity: Planning Board

4. Reconsider the Community Preservation Act (CPA) as a Smart Growth Tool that Could Promote Open Space, Historic Preservation, and Housing. While participation in the Massachusetts Community Preservation Act has previously been proposed in Shirley, it has not yet been brought to a vote at Town Meeting. The Community Preservation Act (CPA) is statewide enabling legislation to allow municipalities to raise money through a surcharge of up to 3 percent on all property tax bills. The CPA funds that the community collects can only be used for open space, historic preservation, affordable housing and outdoor recreation. A minimum of 10 percent of the funds needs to be used on each of the three core community concerns: open space, historic preservation and affordable housing. Five percent can be used for administrative expenses. The rest can be used for outdoor recreation. The community must vote to adopt the CPA. If the community adopts the CPA, they will receive matching funds from the State.

Responsible Entity: Board of Selectmen and Planning Board

5. Explore the Possibilities of Transfer of Development Rights (TDR) Transfer of Development Rights (TDR) is an innovative policy that promotes multiple objectives, including protection of open space, enhancement of residential and commercial districts and reduction of the community’s burden of providing municipal services. TDR is based on the legal concept that landowners possess a “bundle” of property rights, including a title to the land itself plus the right to develop or use that land in certain ways, subject to zoning laws. Under TDR, these rights (i.e. the land itself and the development rights) may be bought and sold separately.

TDR zoning ordinances usually establish two districts. The “sending district” is an area designated for open space protection where development is to be discouraged or limited, while the “receiving district” is an area that can support somewhat higher levels of development. Under TDR, owners of land in the sending district may sell their development rights to owners of land in the receiving district to allow them to carry out their development plans. This type of transfer is particularly useful when one portion a community has valuable resources that need protection, such as open space or historic buildings, while other parts of the community are suitable for new development at densities greater than those currently allowed under zoning.

Responsible Entity: Planning Board

6. Research and Evaluate Agricultural Protection Zoning. Since prime farmland is also ideal for development, a number of municipalities have turned to agricultural preservation zoning to protect remaining farmland from conversion to residential subdivisions or commercial

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and industrial land. In addition to a desire to maintain some of the agricultural ways of life, this type of overlay zoning can help protect historic and cultural resources, open space and scenic vistas.

Several different approaches can be used in creating a bylaw or ordinance to preserve agricultural land. Some communities require that all residential units be clustered on soils that are least suitable for agriculture or along existing public ways. Another approach is to restrict activities on farmland to agricultural activities and supporting uses, which may include limited residential development. As is the case with open space residential zoning, the provision should specify a mechanism by which the protected farmland will be protected in perpetuity. If agricultural activities are to remain in the undeveloped portion of the parcel, a buffer may be necessary to segregate the uses.

Communities should also realize that if new development is allowed to proceed in agricultural areas, especially under a conventional development scenario, infrastructure improvements may be required to accommodate the needs of the new land uses. The expansion of infrastructure into rural areas creates a risk of increasing sprawl conditions since additional development may take advantage of the infrastructure previously unavailable. The Town of Shirley may want to evaluate and identify land that is appropriate for this type of protection.

Responsible Entity: Planning Board

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Implementation Schedule

The recommendations contained herein were developed with the Town’s financial status, staffing capability and administrative capacity in mind. Some of the recommendations in the Master Plan will take a long time to accomplish, while some can be accomplished within a year of the Plan’s completion. The following implementation schedule is broken down into three periods of time:

• Short-term: recommendations that can be implemented within a year of the Master Plan’s completion. • Mid-term: recommendations that will take one-to-five years to implement. • Long-term: recommendations that will take five or more years to implement.

Some of the recommendations will take several years before the Town can start realize benefits, but only if the Town begins working on them now. For recommendations, such as these, they will be listed under the “short-term” actions, meaning the Town should begin working on them immediately. In terms of cost estimates, many of the recommendations are low cost measures that the Town can undertake on its own without professional assistance. However, there are recommendations that deal with large-scale capital improvements that will require substantial financial resources.

Generally, the Plan’s recommendations cannot be tied to an exact cost estimate. Therefore, the cost of implementing the recommendations are broken down into three cost estimate categories:

• Low cost: recommendations that will take less than $1,000 to implement. • Medium cost: recommendations that will cost between $1,000-to-$10,000 to implement. • Big bucks: recommendations that will cost over $10,000 to implement.

Regarding the recommendations that deal with amending the Town’s Zoning Bylaw, they can be handled in one of two ways: The Town can choose to undertake them one at a time on its own (the Low-Cost option), or they can hire a planning consultant to prepare (Medium or High Cost option).

The following Implementation Plan provides a three-phase implementation schedule for each of the Master Plan’s recommendations, the chapter/chapters containing each recommendation, as well as a cost estimate and a denotation of the municipal entity/entities responsible for implementation.

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______IMPLEMENTATION SCHEDULE: SHORT-TERM

• Facilitate the Existing Permitting Process: The Town should put together a comprehensive development permitting guidebook to assist all customers with projects of any type and scale or those who need to obtain any permit; and develop separate handouts for more substantive processes that require additional detail or guidance. The Town of Shirley was awarded MRPC staff time under MRPC’s District Local Technical Assistance (DLTA) program funded by the Commonwealth of Massachusetts. Work on the project is scheduled to commence spring 2017 and be completed no later than December 2017.

Master Plan Chapter: Land Use Cost Estimate: Low Cost Responsible Entity: Town Administrator/ Board of Selectmen Implementation Schedule: Short-Term

• Establish a Master Plan Implementation Committee: The Town should establish a Master Plan Implementation Committee whose job it is to make sure that the Plan’s recommendations are implemented. It may be that Shirley’s Planning Board or a sub-committee thereof would be willing to take on this task although many communities form implementation committees that are separate and distinct from the board or committee that prepared the Plan. If this is the case, the Planning Board could assist in forming the Master Plan Implementation Committee, which in turn would meet with the Town’s other municipal entities that have Master Plan implementation responsibilities and work with them to keep implementation on track. It is suggested that the Committee also brief the Board of Selectmen on the Plan’s progress either quarterly or twice a year.

Master Plan Chapter: Services and Facilities Cost Estimate: Low Cost Responsible Entity: Town Administrator and Planning Board in consultation with the Board of Selectmen Implementation Schedule: Short-Term.

• Continue to Enhance Coordination between Municipal Departments: Shirley’s Board of Selectmen could arrange a meeting of all municipal boards, commissions and committees to be held on a quarterly basis. Such meetings have the potential to help the various boards coordinate their activities, reduce duplicative efforts, and promote a team-oriented approach to town government. Such meetings would be especially important during the annual budgeting process, and it is suggested that the Board of Selectmen involve the Finance Committee during the quarterly meeting where municipal department operating budgets are discussed.

Master Plan Chapter: Services and Facilities Cost Estimate: Low Cost 148

Responsible Entity: Town Administrator/ Board of Selectmen Implementation Schedule: Short-Term

• Continue Efforts to Coordinate Town and Community Services to the Benefit of Shirley’s Residents: Shirley has utilized resources to promote two-way communication between citizens and town government, including its website and Facebook. Such an initiative involves all municipal departments in an effort to share important information with citizens such as: upcoming board meetings, Town Meeting information including budget proposals and warrant articles, departmental hours of operation and contact information, availability of municipal facilities for public use, tax information, bylaws and regulations, municipal initiatives, community events and opportunities for citizen participation (volunteer opportunities, board vacancies, etc.).

Master Plan Chapter: Services and Facilities Cost Estimate: Low Cost Responsible Entity: Board of Selectmen in conjunction with all of Shirley’s municipal departments and boards/commissions/committees. Implementation Schedule: Short-Term

______IMPLEMENTATION SCHEDULE: MID-TERM

• The Town should revisit and strive to implement recommendations made in the Shirley Reconnaissance Report. Although this report is more than 10 years old, much of it remains relevant. The report includes a listing of seven (7) prioritized heritage landscapes (Ayers Creamery, Green Lane, Longley Homestead and Fields, Mulpus Brook Mill Ruins, Phoenix Mill Complex, President Mill and Catacunemaug Brook, and Shirley Village), accompanied by recommendations. A heritage landscape is defined as “a special place created by human interaction with the natural environment that helps to define the character of a community and reflect its past.” The report also includes existing resource documentation and planning tools, and general preservation planning recommendations. The Town should start by reviewing this document and listing recommendations that have not yet been implemented.

Master Plan Chapter: Historic and Cultural Resources Cost Estimate: Medium Cost Responsible Entity: Shirley Historical Commission Implementation Schedule: Mid-Term

• Establish a Development Review Team to provide one-stop staff review of key development projects. Developers appreciate that you value their time and want to make their project permitting go more smoothly and 149

expeditiously. The Town Administrator should be the point of contact for businesses seeking assistance. MRPC can provide the Town of Shirley with a number of existing communities across the Commonwealth that have already adopted a Development Review Bylaw to use as examples. Master Plan Chapter: Economic Development Cost Estimate: Low Cost Responsible Entity: Board of Selectmen Implementation Schedule: Mid-Term

• Retain current businesses. Develop an ambassador program. Conduct visits. Meet on a regular basis, establish a roundtable and solicit their ideas. Help local businesses pursue training grants. Pursue grant funds for loan pools and commercial improvements Master Plan Chapter: Economic Development Cost Estimate: Low Cost Responsible Entity: Board of Selectmen Implementation Schedule: Mid-Term

• Prepare a market study to identify retail businesses likely to succeed in Shirley. Some research required for a market study has already been completed as part of this project. MRPC has already obtained a market profile for the Town of Shirley, utilizing ESRI Business Analyst in the 2010 Economic Development Element. A retail market study draws on information from a variety of sources, mainly the US Economic Census, to determine the amount of purchasing demand in the study area for various types of retail businesses. It compares this to sales standards for typical business to determine whether the demand is being met locally, or if there is unmet demand. This unmet demand, or “leakage,” indicates the potential for additional retail establishments in the trade area. A current market study would provide a tool for the town to target its business development efforts. Master Plan Chapter: Economic Development Cost Estimate: High Cost Responsible Entity: Board of Selectmen Implementation Schedule: Mid-Term

• Assess Areas Zoned Commercial, Industrial and Mixed-Use for Development Potential. The assessors’ records indicate a limited amount of “potentially developable” commercial, industrial or mixed-use parcels. Site investigation shows far more sites that are developable. Some existing commercial or industrial parcels could be redeveloped for new uses; some existing parcels have additional developable parcels abutting them. In some cases, the zoning of adjacent parcels might need to be adjusted. Some parcels are brownfields that need remediation to be made available for further development. The following areas should be examined for development potential:

Mohawk Motors (Great Road) and adjacent area Burlington Auto Parts (Hazen Road) and adjacent area

The area adjacent to the DPW facility on Great Road

Land adjacent to the town landfill on Leominster Road

Land on the west side of Lancaster Road, adjacent to the existing - industrial park

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Parcels on Ayer Road and Patterson Road

Master Plan Chapter: Economic Development Cost Estimate: Low Cost if undertaken by Town. Medium cost if a consultant is hired Responsible Entity: Planning Board Implementation Schedule: Mid-Term

• Reconsider the Community Preservation Act (CPA) as a Smart Growth Tool that Could Promote Housing. While participation in the Commonwealth Community Preservation Act (CPA) has previously been proposed in Shirley, it has not yet been brought to a vote at Town Meeting. CPA is a smart growth tool that helps communities preserve open space and historic sites, create affordable housing, and develop outdoor recreational facilities. CPA can also strengthen the local economy by expanding housing opportunities and construction jobs for Shirley’s workforce.

Eligible uses of CPA for affordable housing are as follows:

Master Plan Chapter: Housing and Land Use and Historic and Cultural Resources Cost Estimate: Low cost Responsible Entity: Board of Selectmen and Planning Board Implementation Schedule: Mid-term

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• Conduct a Comprehensive Circulation Study/Plan. The Town could undertake a Comprehensive Circulation Study/Plan of non-motorized users that could identify major travel routes, crosswalks, sidewalks, appropriate pavement markings and signage, etc. This plan should include major areas of concern for the Town (i.e., downtown, Town Hall, library, post office, schools, recreation facilities, etc.). In addition, this plan could identify links to the Town’s overall trail/bike network.

To supplement and work in conjunction with a Comprehensive Circulation Study/Plan, design guidelines could be established. The guidelines would be for property owners planning exterior alterations, additions to or rehabilitation of existing buildings and would also apply to the design of new buildings. A potential funding source for design guidelines might include MRPC’s District Local Technical Assistance (DLTA) Program which is funded by the Commonwealth. While funding for this program is currently available, future funding is not guaranteed.

Master Plan Chapter: Transportation/ Circulation Cost Estimate: Low cost if MRPC’s UPWP and DLTA programs are Utilized. Responsible Entity: Shirley Board of Selectmen in cooperation with the Planning Board/Department, Department of Public Works, and Police Department. Implementation Schedule: Mid-Term

• Strengthen Public Transportation. Since the Town of Shirley is already on a commuter rail line, there is a need to get residents and visitors to and from the train station via sidewalks, bike lanes, and transit bus or shuttle. This would be particularly useful for those residents who are considered low income, elderly, or disabled. The Shirley Board of Selectmen could request assistance from the Montachusett Area Regional Transit Authority (MART). Discussion between Shirley and MART may include relevant/current MART programs and the explore use of the Senior Center van to transport seniors to and from the train station. Master Plan Chapter: Transportation Cost Estimate: Low Cost Responsible Entity: Shirley Board of Selectmen would be the appropriate board to contact MART Implementation Schedule: Mid-Term

• Create a Crash Monitoring System. This system would monitor and analyze traffic crash data for all roads and intersections to determine the patterns and causes. When a location becomes severe enough, the Town should seek potential projects to address the identified issues at the locations. Where appropriate, state and federal funding assistance should be procured. Consider working with the local regional planning agency (MRPC), as well as the Massachusetts Department of Transportation (MassDOT) Highway Division Office, on projects and funding opportunities. 152

Master Plan Chapter: Transportation Cost Estimate: Low Cost Responsible Entity: Shirley MJTC Representatives working with the Department of Public Works, Police Department, and reporting to the Shirley Board of Selectmen. Implementation Schedule: Mid-Term

• Review/Analyze Current Zoning Bylaws/Ordinances: Determine the adequacy of the current bylaws, etc. for accommodating desired land-use and development within the community. The overall intent could be to examine the use and dimensions to identify internal inconsistencies and to make recommendations for removing zoning impediments. Additional thoughts moving forward with this recommendation include the town’s Low Impact Development Bylaw which, to date, hasn’t been utilized. The town should research and analyze any alternatives that could make it more attractive to developers. The Town could start by researching successful model bylaws and case studies implementing land conservation zoning .and even contact any local developers who have developed housing projects in Town to solicit their input for potential weaknesses of the of the bylaw from a land developer’s perspective.

Master Plan Chapter: Land Use Cost Estimate: Low cost if conducted by the Town, high cost if a consultant is hired Responsible Entity: Planning Board Implementation Schedule: Mid-Term

• Explore the Possibilities of Transfer of Development Rights (TDR). TDR is an innovative policy that promotes multiple objectives, including protection of open space, enhancement of residential and commercial districts and reduction of the community’s burden of providing municipal services. TDR is based on the legal concept that landowners possess a “bundle” of property rights, including a title to the land itself plus the right to develop or use that land in certain ways, subject to zoning laws. Under TDR, these rights (i.e. the land itself and the development rights) may be bought and sold separately.

Master Plan Chapter: Land Use Cost Estimate: Low Cost Responsible Entity: Planning Board Implementation Schedule: Mid-Term

• Research and Evaluate Agricultural Protection Zoning. Since prime farmland is also ideal for development, a number of municipalities have turned to agricultural preservation zoning to protect remaining farmland from conversion to residential subdivisions or commercial and industrial land. In addition to a desire to maintain some 153

of the agricultural ways of life, this type of overlay zoning can help protect historic and cultural resources, open space and scenic vistas.

Communities should also realize that if new development is allowed to proceed in agricultural areas, especially under a conventional development scenario, infrastructure improvements may be required to accommodate the needs of the new land-uses. The expansion of infrastructure into rural areas creates a risk of increasing sprawl conditions since additional development may take advantage of the infrastructure previously unavailable.

Master Plan Chapter: Land Use Cost Estimate: Low Cost Responsible Entity: Planning Board Implementation Schedule: Mid-term

• Regionalization of Services and Consolidation: Shirley should continue to explore regionalization opportunities with neighboring towns that have the potential to reduce operating costs. One resource that could further any effort made by the Town is MRPC’s District Local Technical Assistance (DLTA) Program. In late 2016, Shirley submitted a DLTA application for a feasibility study comprised of recommendations to potentially join or not join a regional dispatch center.

• Shared services (e.g., regional lockup, regional 911 centers, other public safety and emergency response responsibilities, information technology/data management, school district/regional school district analysis, shared professional and administrative services, agreements to operate shared waste disposal/recycling facilities/programs); • Collective purchasing (if such purchasing cannot be otherwise accomplished using statewide contracts or can be achieved regionally for less than the state contract price, or items proposed for purchase that are specific to municipal and/or school district agreements); and • Cost saving measures that benefit more than one municipality.

Master Plan Chapter: Services and Facilities 154

Cost Estimate: Low Cost Responsible Entity: Town Administrator/ Board of Selectmen Implementation Schedule: Mid-Term

• Revisit the 2008 Massachusetts Department of Revenue (DOR) Financial Management Review. In November 2008, a Financial Management Review for the Town of Shirley was completed by the Massachusetts Department of Revenue (DOR), Division of Local Services/Technical Assistance Section. The Board of Selectmen made the request in order to identify areas where town operations and performance could be improved. The report consists of recommendations based on site visits by a Division of Local Services (DLS) team from the Technical Assistances Section, Bureau of Accounts, and Bureau of Local Assessment. DOR interviewed and received information from the selectmen, members of the finance and capital planning committees, the town accountant, town collector, town clerk, treasurer, principal assessor, school superintendent and school business manager, as well as other staff members, as available, in each office. The report also indicates that numerous local financial documents were reviewed in order to form the series of recommendations. The Town should revisit this document to see if there are any recommendations that are still relevant that could be implemented to improve municipal finances.

Master Plan Chapter: Services and Facilities Cost Estimate: Low Cost Responsible Entity: Town Administrator/ Board of Selectmen Implementation Schedule: Mid-Term

• Organizational Flow Chart: The Town could prepare an organizational flow chart that depicts all municipal departments, boards, commissions, committees and ad-hoc committees and outline which entity established them and which entity they report to. Responsible municipal entities:

Master Plan Chapter: Services and Facilities Cost Estimate: Medium Cost Responsible Entity: Town Administrator in conjunction with the Board of Selectmen Implementation Schedule: Mid-Term

• Expand the Town’s Information Technology by Continuing to Utilize MR. Mapper: The Montachusett Regional Planning Commission (MRPC) markets a mapping and data service known as MRMapper which can be customized to fit the needs of any municipal department. Its applications are limited only by what data exists or could exist digitally. MRMapper can allow users to access, view, query, edit, export and share data related to the Montachusett Region and your community or area of interest, allowing users to print maps as well as standardize and streamline processing techniques and workflow scenarios in order to focus on specific tasks to efficiently solve recurring problems, evaluate common issues, update information and produce reports. The Town should continue to utilize MRMapper and contact MRPC with any questions or to request a training session, perhaps at a municipal department head’s meeting.

Master Plan Chapter: Services and Facilities Cost Estimate: Low Cost Responsible Entity: Town Administrator Implementation Schedule: Mid-Term

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• Consider any new potential zoning carefully, and conduct changes incrementally, with extensive outreach to ensure public buy in. Keeping this in mind, the following zoning revisions are recommended:

Industrial/Commercial Mixed-use Development

Evaluate Current Commercial and Industrial Districts

If identified parcels meet the standards for economic development, the Town should propose a zoning change, including strong outreach efforts to create public support for the changes.

Master Plan Chapter: Economic Development and Land Use Cost Estimate: Low cost if conducted by the Town. High cost if a consultant is hired Responsible Entity: Planning Board Implementation Schedule: Long-Term

• Promote Traffic Calming Efforts. Conduct a study to see whether and where speeding problems exist. If there is a need, based on this study, then the use of traffic calming measures should be examined. Traffic calming measures include a range of strategies to slow traffic and deter the use of local residential roads for through traffic. Strategies might include one-way streets, neckdowns or narrow travel lanes, on-street parking, or speed humps. Those currently employed by the town are cul-de-sacs and dead-end streets. Traffic calming must be conducted in a comprehensive manner—not piecemeal—otherwise traffic will simply shift from one local street to another. Currently the Town is using signs in the school zone on Lancaster Road and Hospital Road to draw attention to the

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pedestrian crossing areas as well as using temporary radar trailers to help with speeding. Enforcement measures should be identified and put in place before the local streets become inundated by through traffic. The Town can also require developers to implement traffic calming measures in new subdivisions. Master Plan Chapter: Transportation Cost Estimate: Low cost to high cost depending on project Responsible Entity: Shirley Board of Selectmen with significant input from the Department of Public Works, Police Department, and Planning Board Implementation Schedule: Long-Term

• Sidewalks. Make the neighborhoods, especially the downtown, more pedestrian - friendly through the construction and rehabilitation of sidewalks. Current design standards for ADA compliance should be incorporated. This effort could, at least in part, be incorporated into a Comprehensive Circulation Study/Plan. Potential financing for needed roadway and sidewalk repairs for Shirley’s local roads includes Complete Streets, Enhancement funds, public/private partnership projects, and Community Development Block Grant funds (in moderate-income neighborhoods). Master Plan Chapter: Transportation/ Circulation Cost Estimate: Low cost to high cost depending on project. Responsible Entity: Shirley Board of Selectmen, with significant input from the Department of Public Works, Police Department, and Planning Board. Implementation Schedule: Long-Term

• Regional Trail Network. Work with neighboring communities and regional entities to establish a regional trail network that would ultimately link Shirley to various recreational opportunities outside of the Town (i.e., Nashua River Rail Trail). Currently there are limited bike and pedestrian trails within the community. The Town may wish to identify, prioritize and implement additional trail opportunities. Master Plan Chapter: Transportation Cost Estimate: low cost to high cost depending on project. Responsible Entity: Shirley Board of Selectmen with significant input from the Department of Public Works, Conservation Commission, Open Space Committee, and Planning Board. Implementation Schedule: Long-Term

IMPLEMENTATION SCHEDULE: ONGOING

• The Town should review the Massachusetts Cultural Resource Information System (MACRIS) for any inaccurate information and make note of additional properties that should be included in the inventory. In order to be included in the inventory, Massachusetts Historical Commission (MHC) guidelines need to be followed to determine qualifications and then the property must be documented on an MHC inventory form (forms can be found at www.sec.state.ma.us/mhc/mhcform/formidx.htm.), which is then entered into the MHC database. Additional information on Inventory Forms drafted by MHC can be found in Attachment 4 of this element.

As the local organization, responsible for historic preservation planning, the Shirley Historical Commission should work on this task. Moreover, it would be particularly useful for the Shirley Historical Commission to develop a plan for an active and ongoing program to initiate, maintain, update, and expand the community-wide inventory of historical and cultural resources. 157

Master Plan Chapter: Historic and Cultural Resources Cost Estimate: Low Cost Responsible Entity: Shirley Historical Commission Implementation Schedule: Ongoing

• The Town should be aware of Preservation Restrictions (MGL Chapter 184, sections 31-33) and Conservation Restrictions (MGL Chapter 184, sections 31-33). Preservation restrictions could potentially be used for specific properties of historical significance to work hand-in-hand with a historic district bylaw. Since a local historic district bylaw only assists in the preservation of exterior features visible from a public way, the town may want to work with some owners on implementing preservation restrictions. A preservation restriction is a legal agreement between a property owner and another party, usually a non-profit organization or government body. Such an agreement “runs with the land,” governing the use of the property by current and future owners. For the owner of a National Register listed property, a preservation restriction may qualify as a charitable tax deduction. It may also reduce the assessed value of the property, resulting in property tax savings. For the community, the preservation restriction is a very effective method of preserving a structure, both inside and outside, and its setting. A preservation restriction can assure the following:

• Protection of the exterior and/or interior features of the structure. • Protection of the appearance or condition of the site. • Protection of archaeological resources.

Master Plan Chapter: Historic and Cultural Resources Cost Estimate: Low Cost Responsible Entity: Shirley Historical Commission in communication with the Planning Board and Conservation Commission Implementation Schedule: Ongoing

• Public Education is an important component of historic preservation. Owners of historic properties should be educated about the importance of voluntarily maintaining historic structures against decay, deterioration, and structural damage to avoid possible loss of historic resources. Owners of historic structures may be unaware of a property’s historic or architectural significance and, as a result, may alter or destroy the structure or site without having a full appreciation of the impact of their actions.

communities have also used plaque programs to educate the public about the history of the community. A plaque program can provide homeowners, eligible for a plaque, with a sense of pride in owning a historic building. The Massachusetts Historical Commission can be contacted for a list of communities in Massachusetts with a plaque program.

Master Plan Chapter: Historic and Cultural Resources Cost Estimate: Low Cost Responsible Entity: Shirley Historical Commission Implementation Schedule: Ongoing

• The Town of Shirley should be aware of the Massachusetts Preservation Project Fund. This is a state-funded matching grant program (in years when the Commonwealth authorizes funds) available for the preservation of properties, landscapes, and sites listed in the State Register of Historic Places. Applicants must be a municipality or non-profit organization. Examples of eligible projects include stabilization, protection, rehabilitation, restoration, and acquisition. The responsible entity would be the Shirley Historical Commission with Planning Board support. It should also be noted that Community Preservation Act (CPA) funds (if the Town decided to eventually participate in CPA) could enable the Town to apply for matching grants from the state to conduct preservation studies and prepare National Register nominations.

The Town should also be aware of the Massachusetts Historical Commission Survey and Planning Grant Program. This is a federally funded, reimbursable, 50/50 matching grant program to support historic preservation planning activities in communities throughout the state. CPA funds for these resources can also be used as matching funds. According to MHC, eligible activities include completion of cultural resource inventories, nomination of significant properties to the National Register of Historic Places, completion of community-wide preservation plans, and additional types of studies and reports relating to the identification and protection of significant historic properties and sites. Additional information can be found at (http://www.sec.state.ma.us/mhc/mhchpp/Surveyandplanning.htm

Master Plan Chapter: Historic and Cultural Resources Cost Estimate: Low cost if undertaken by the Town. Medium cost if consultant is hired. Responsible Entity: Shirley Historical Commission with Planning Board support Implementation Schedule: Ongoing

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• The Town should Work with the Johnny Appleseed Trail Association, Inc., and Visitor Center to encourage sustainable cultural tourism which can help to preserve Shirley’s unique character while strengthening and diversifying the local economy. Master Plan Chapter: Historic and Cultural Resources. Cost Estimate: Low cost. Responsible Entity: Shirley Historical Commission with Planning Board support. Implementation Schedule: Ongoing

• The Town should keep up to date with any kind of training that MHC might have to offer. In the past, MHC has held On the Road workshops offered to local historical commissions, historic district commissions, local historic district study committees, and the general public. The MHC “On the Road Program” includes modules such as an Introduction to Historic Preservation Planning, Establishing Local Historic Districts, and preparing Inventory Forms. Shirley could also consider having the Montachusett Regional Planning Commission organize/facilitate/recruit presenters for a regional workshop for MRPC member communities. Master Plan Chapter: Historic and Cultural Resources Cost Estimate: Low cost Responsible Entity: Shirley Historical Commission. Implementation Schedule: Ongoing

• Establish an Economic Development Industrial Commission (EDIC) or similar entity charged with implementing economic development policy. The Town already has an Economic Development Committee, but if a more formalized approach is desired, an EDIC could be considered. An EDIC established under MGL Chapter 121C has the power to: • Acquire, improve, sell, or lease real estate.

• Borrow money or bonds in its own name.

• Apply for and expend grants.

• Hire staff or outside consultants.

• undertake economic development project planning and implementation.

• acquire land through eminent domain.

• develop, sell, convey, lease, mortgage, transfer or exchange property.

• borrow and invest money and issue corporate as well as revenue bonds.

• receive grants, loans or advances from federal/state/local government.

• pledge the credit of the municipality.

• finance pollution control facilities.

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• manage projects.

• act as an Urban Redevelopment Corporation under Chapter 121A.

An EDIC could be used to assemble parcels in key areas, develop them into planned development projects, such as an industrial park, providing serviced, pad-ready, pre-permitted sites for development.

Master Plan Chapter: Economic Development Cost Estimate: Low Cost Responsible Entity: Board of Selectmen with assistance from the Planning Board. Implementation Schedule: Ongoing

• Develop a marketing brand for the community. Establishing a presence at regional trade shows such as the annual tradeshow in Fitchburg would make clear that Shirley is serious about pursuing new business. Work with local banks to identify prospective new businesses. Master Plan Chapter: Economic Development Cost Estimate: Low Cost Responsible Entity: Board of Selectmen Implementation Schedule: Ongoing

• Place economic development information on the Town’s website. The home page of the Town’s website should contain a prominent link to this information which should include the following areas: top employers; tax incentive policy; available financial assistance; who to contact; success stories (e.g. Phoenix Park); economic, demographic, labor and education; transportation; utilities and infrastructure; market intelligence; and current and upcoming projects. This is the easiest and least costly way to market the community. Most developers or business owners who are searching for information about Shirley will look here first. Because it represents the community, and “you only get one first impression,” it should be of high quality. Do not forget to highlight recreational and cultural amenities since firms place a premium on quality of life issues. Master Plan Chapter: Economic Development Cost Estimate: Low Cost Responsible Entity: Town Administrator Implementation Schedule: Ongoing

• Consider recreation and culture as economic development activities. Shirley has abundant, attractive open space resources. Further, highways and public rail transportation directly links the Town to the greater Boston metropolitan area. There is potential to draw visitors to Shirley from as far away as Nashua, Boston and Worcester. (“It’s easy to hop the train to Shirley.”) Consider these recreational and cultural resources: • Trails. Develop the trail connection to Ayer and the Ayer-Dunstable trail. Develop green space along the rail line east of the village center.

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• Woodlands and conservation lands are an opportunity for multi-season uses, including hiking, cross- country skiing, etc. Explore the potential for joint activities with The Trustees of Reservations (TTOR) on their 80-acre Farandnear reservation in Shirley Center; and with the Oxbow National Wildlife Refuge located near the border with Shirley.

Master Plan Chapter: Economic Development Cost Estimate: Low Cost Responsible Entity: Board of Selectmen Implementation Schedule: Ongoing

• Explore the Use of Tax Increment Financing (TIF) and other incentive programs to stimulate investment in desired development areas. Massachusetts’ version of Tax Increment Financing allows municipalities to offer flexible targeted incentives to stimulate job creation. Briefly, communities’ designate areas where they are willing to consider requests for incentives. The community negotiates an incentive agreement with the business that specifies the terms of the incentive. The business pays the regular real estate taxes on the value of the site and existing facility (if any), called the “base value.” It pays reduced or no real estate taxes on the increased value created because of the investment (called the “increment”). Personal property taxes for both existing and new property are exempt during the life of the agreement. Many communities publish their TIF policies online. Developers appreciate being told the rules up front, and many of them will tailor their project to satisfy local guidelines in order to qualify for the tax incentive.

Master Plan Chapter: Economic Development Cost Estimate: Low Cost Responsible Entity: Board of Selectmen and Planning Board Implementation Schedule: Ongoing

• Aggressively seek funding for road improvements. Road improvements should be part of an integrated capital improvement plan. Town officials should seek out federal and state funds and participate in the transportation planning process at MRPC. (The Shirley Board of Selectmen’s appointment to the Joint Transportation Committee is currently vacant.) Further, they should ensure that key road projects are listed on the Transportation Improvement Plan (TIP) and actively press for regular funding of local projects. Master Plan Chapter: Economic Development Cost Estimate: Low cost Responsible Entity: Board of Selectmen and the Department of Public Works Implementation Schedule: Ongoing

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• Promote the Use of the Low Impact Development Bylaw. There are many benefits of low impact development, including the efficient use of land to protect environmental resources. In the Town of Shirley, the vast majority of developable land is within the residential districts that make up most of the rural areas. Zoning in Shirley already allows for low impact development. However, it is infrequently used. The Town should find ways to promote its use by making it a more attractive alternative to developers.

Master Plan Chapter: Housing Cost Estimate: Low cost Responsible Entity: Planning Board Implementation Schedule: Ongoing

• Continue to apply for Community Development Block Grant (CDBG) Funds for Housing Rehabilitation. About 23.5% of the housing stock in Shirley was built in 1939 and many of these older residences would not meet today’s various housing codes. The Towns of Shirley and Lancaster applied for a regional FY15 Community Development Block Grant (CDBG) for Housing Rehabilitation and Home Heating Fuel Assistance that was funded in July 2015 in the amount of $940,389 by the Commonwealth Department of Housing and Community Development. Beneficiaries of these programs will be low and moderate income residents in Shirley and Lancaster. The Town of Shirley applied for CDBG funds for Housing Rehabilitation on March 10th, 2017 and should continue to apply on an annual basis. CDBG is a federal program under the U.S. Department of Housing and Urban Development (HUD), which is implemented at the state level by the Department of Housing and Community Development (DHCD). The Town should also continue its outreach efforts to make certain that Shirley residents are aware of this program.

Master Plan Chapter: Housing Cost Estimate: Low cost Responsible Entity: Town Administrator/ Board of Selectmen Implementation Schedule: Ongoing

• Explore preparation of a Planning Assistance Toward Housing (PATH) grant application to the Department of Housing and Community Development (DHCD) for Implementation of this Housing Element to meet Housing Goal and Objectives. PATH has funds available to assist communities expand housing opportunities. Funding is available to communities to support a broad range of planning activities, including community initiated activities on municipally-owned sites; changes to land use and zoning; and planning for housing/mixed-use development in specific geographic areas. Priority for funding is given to applications that support the creation of as-of-right multi-family zoning districts for DHCD approval and/or encourage new multi-family housing production in new or existing mixed-use districts (e.g., within city or town centers or transit-oriented development areas). The complete list of eligible activities can be found at www.mass.gov/hed/community/planning/planning-assistance- toward-housing-path.html

Master Plan Chapter: Housing Cost Estimate: Low cost Responsible Entity: Town Administrator/ Board of Selectmen Implementation Schedule: Ongoing

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• Continue efforts to expand the housing options for an aging population, including age-restricted, senior, and assisted-living housing. Currently, assisted living facilities and/or nursing homes are allowed by special permit by the Planning Board in the RR, R-1, R-2, R-3, and Great Road West Mixed-Use zoning districts. Also, “congregate elderly housing, up to 8 units in a single building”, is a permitted use in the Shirley Village Business District.

Other efforts include a recent Super Town Meeting for Devens in which an article was passed to change zoning in the “Shirley Village Growth District” on the Shirley part of Devens to allow for senior residential housing, Specifically, this allows 120 age-restricted rental units for residents aged 62 or older.

Master Plan Chapter: Housing Cost Estimate: Low cost Responsible Entity: Planning Board Implementation Schedule: Ongoing

• Facilitate long-term affordability of energy in housing. Heating and utilities costs can rise rapidly at a greater rate than income. This can create problems for households that may be barely able to afford the “affordable” housing unit in which they reside. In fact, as previously stated, almost 36% of Shirley’s residents who own a home and have a mortgage are paying more than 30% of their income towards monthly mortgage payments and other selected housing costs. Efforts should be made to seek ways, through creative funding or educational efforts, to encourage initial investments in energy-saving design, construction, and equipment although initially somewhat more expensive, these investments, will pay dividends over time by reducing heat and utility demands and costs for occupants.

Master Plan Chapter: Housing Cost Estimate: Low cost Responsible Entity: Town Administrator/ Board of Selectmen; Shirley Energy Committee Implementation Schedule: Ongoing

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• Collaborate with Private Non-Profit Organizations (e.g., Habitat for Humanity and Montachusett Enterprise Center). As previously stated, according to the Warren Group, the median sales price for a single-family home in 2016 was $292,000 and it is anticipated that housing costs will increase as the market continues to recover from the Great Recession. Habitat for Humanity (HFH) is a well-known nonprofit that believes that all people should have a decent, safe and affordable place to live. Habitat builds and repairs houses throughout the world using volunteer labor and donations. Partner families then purchase these houses through no-profit mortgage loans or innovative financing methods. Shirley is located within the service area of Habitat for Humanity North Central Commonwealth which is headquartered in Fitchburg. According to the Executive Director of the North Central Commonwealth affiliate, if there is strong interest in working on a Habitat for Humanity project in Shirley, the following steps should be undertaken:

• Initiate contact with the Habitat for Humanity North Central Commonwealth chapter.

• Call for a public meeting of anyone interested in pursuing the possibility of working with Habitat for Humanity in Shirley.

• Identify property or properties that could be built on or renovated.

• HFH would then appoint a construction manager and initiate the project.

Master Plan Chapter: Housing Cost Estimate: Low cost Responsible Entity: Board of Selectmen and Planning Board. Implementation Schedule: Ongoing

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• Monitor Foreclosures. As previously indicated, according to the Warren Group, there has been a recent increase in foreclosures over the last few years; in 2013, there were four foreclosures compared to five in 2014, eight in 2015, and ten in 2016. Efforts should be made to assist property owners to avoid foreclosure on their property. However, should a property be foreclosed, the Town needs to know the location, specifications, and condition of the property to plan how to address it. For the Town of Athol, MRPC has developed an application for mobile devices to assist the Town in maintaining a current inventory of vacant and foreclosed properties. The application is able to map current locations of vacant properties based on this inventory, enabling the Town to update this inventory in real time and maintain a complete and current database of distressed properties. This inventory can be used to prioritize properties for rehabilitation and resale and to monitor progress toward reduction and elimination of foreclosure activity within the community. The inventory can also be used to identify “hot spots” within the community with higher densities of foreclosures to assess their causes and determine possible means of mitigation.

Master Plan Chapter: Housing Cost Estimate: Low cost Responsible Entity: Board of Selectmen/ Town Administrator/ Planning Board/ Assessors Office Implementation Schedule: Ongoing

• Strive to Comply with Chapter 40B. Shirley should strive to Comply with Chapter 40B of Commonwealth General Laws. Chapter 40B outlines a municipality’s responsibilities regarding the provision of low and moderate- income housing. Under the law, at least 10% of their community’s year-round housing stock must be affordable for low and moderate-income households, defined as those earning no more than 80% of the area median income. At the present time, about 2.48% of Shirley’s housing stock meets the Chapter 40B definition. The benefits of being proactive in this area include not just compliance with Chapter 40B but also helping to provide affordable housing units for a broad range of income groups, including municipal employees, fire fighters, policemen and teachers.

Master Plan Chapter: Housing Cost Estimate: Low cost Responsible Entity: Planning Board and Zoning Board of Appeals. Implementation Schedule: Ongoing

• Continue Proactive Town Participation with MRPC. Decisions related to project development, prioritization, funding, and scheduling are made through the metropolitan planning process and the MRPC serves as staff to the Metropolitan Planning Organization (MPO). Active involvement in the planning process, in which MRPC, the Montachusett Joint Transportation Committee (MJTC) and the Montachusett MPO, will ensure that issues and projects important to the Town are reviewed and acted upon. Therefore, Shirley should be more actively engaged in MRPC activities. Master Plan Chapter: Transportation/ Circulation Cost Estimate: Low cost Responsible Entity: Shirley Board of Selectmen and Planning Board are each responsible for designating a MJTC Shirley Representative, who should make every effort to attend monthly MJTC meetings and communicate with MRPC transportation staff. 166

Implementation Schedule: Ongoing

• Schedule Traffic Counts with MRPC. MRPC solicits from each community up to four traffic count locations per calendar year. The purpose is to monitor traffic patterns over time in order to anticipate the need for future improvements. Traffic counts are conducted by MRPC at no cost to the community. Shirley has taken advantage of this program in the past and should continue to do so in the future. Master Plan Chapter: Transportation/ Circulation Cost Estimate: Low cost. Responsible Entity: Board of Selectmen (BOS) is the responsible entity for forwarding traffic count requests to the MRPC. The BOS should solicit up to five potential locations for traffic counts from Town Boards and Departments (Department of Public Works, Police Department, Planning Board, etc.) on an annual basis. Implementation Schedule: Ongoing

• Bridges. Encourage the State to further investigate the structure, function, and scour ratings of key bridges in Shirley, and make these bridges a funding priority. Master Plan Chapter: Transportation/ Circulation Cost Estimate: Low Cost Responsible Entity: Shirley Board of Selectmen should initiate discussion with the Massachusetts Department of Transportation (MassDOT) District 3 office and encourage involvement from the Shirley Department of Public Works.

Implementation Schedule: Ongoing

• Culverts. Conduct and maintain an inventory of culverts within the community and create a program to clean, repair and update the structures as needed. Master Plan Chapter: Transportation Cost Estimate: Low Cost. Responsible Entity: Shirley Department of Public Works. Implementation Schedule: Ongoing

• Pavement Management System. The Town needs to protect its investment in roads and other public facilities. Lack of routine maintenance investment results in needless deterioration and replacement, resulting in reduced utility and greater long-term replacement costs. Where appropriate, the Town should seek local and federal funding assistance for eligible roads. The Town should consider working with MRPC and the Massachusetts Department of Transportation (MassDOT) Highway Division Office, on projects and funding opportunities. Master Plan Chapter: Transportation/ Circulation Cost Estimate: Low Cost. Responsible Entity: Shirley MJTC Representatives working with the Department of Public Works, Police Department, and reporting to the Shirley Board of Selectmen.

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Implementation Schedule : Ongoing

• Continue to Pursue Grant Opportunities under the MA Green Communities Program: Shirley has been designated as a Green Community under the State’s Green Communities Program. As part of this effort, the Town prepared an Energy Reduction Plan and is eligible to apply for MA Green Communities Program grants of up to $250,000 covering the action items contained in the plan. Applications are due on an annual basis.

Master Plan Chapter: Services and Facilities Cost Estimate: Low Cost Responsible Entity: The Energy Committee working with other Town departments Implementation Schedule: Ongoing

• Training and Materials for New Board/Committee/Commission Members: Each Board, Committee and Commission in Shirley’s Town Government should prepare a handbook that details their policies and procedures for new members and then offer a board-sponsored training session to bring new members up to speed. Further, each entity should identify training opportunities for its new members. The Citizen Planner Training Collaborative (CPTC) offers annual training for new and returning Planning Board and Zoning Board members, while the Massachusetts Municipal Association also offers a wide variety of training opportunities for new Selectmen and other municipal officials. The Massachusetts Association of Conservation Commissions also offers training for new Conservation Commission members.

Master Plan Chapter: Services and Facilities Cost Estimate: Low Cost Responsible Entity: All citizen-staffed boards, committees and commissions. Implementation Schedule: Ongoing

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