The Whitefield Comprehensive Planning Committee was authorized by the Town’s selectmen, and modest funding was approved at the 2003 Town Meeting. The committee was charged with taking stock (inventory) of town resources, issues, and trends in order to develop a current comprehensive plan that would be presented to the State and the residents of the town for approval in 2004/2005. The Committee chair was Charlene Donahue. Active committee members included Charles Acker, Alice Davis, David Dixon, Erik Ekholm, Libby Harmon, Herb Hartman, Pat Jennings, Ann Marie Maguire, Tony Marple, Lucy Martin, Sue McKeen (vice-chair), Marie Sacks, and Lester Sheaffer Jr. (secretary).

The purpose of the Comprehensive Planning Committee’s work, in which many neighboring towns are presently engaged, is to develop a plan for guiding change within the community for the next ten to twenty years.

A survey sent by the committee to 1000 Whitefield residents in the summer of 2002 indicated that a majority of the 220 respondents favored maintaining the town’s “rural character” in the face of rapidly growing population and increased development, both residential and commercial.

A bus tour taken by the planning committee in the fall of 2003 reacquainted members with the many beautiful stretches of woods and open fields that are an essential component of the town’s “rural character” and make Whitefield a special place to live. At the same time, the numerous new homes that had sprouted along byways and back roads testified to the attractiveness of the town to a rapidly growing number of new residents.

The planning committee held meetings on the third Thursday of every month; hired facilitator Erik Hellsted from Planning Decisions of South Portland to advise and assist in the preparation of materials; and received invaluable assistance from the Sheepscot Valley Conservation Association, which prepared numerous maps, and the Lincoln County Planner, Bob Faunce, who prepared the transportation section. A newsletter was sent to residents in March 2004; presentations on the progress of the planning process and the plan itself were made to the selectmen on several occasions and at the 2003 and 2004 Town Meetings; a “visioning” session for residents was held in April, 2004; portions of the developing plan were sent electronically to a mailing list of interested parties; and extensive outreach efforts were made to inform residents of the plan’s findings and solicit review and comment on the inventories and the committee’s proposed goals and strategies. “Neighborhood” discussion meetings were held in Coopers Mills and Kings Mills in July 2005; a public hearing was held on August 29, 2005 at the Town House. The developing draft plan and related information were available on the Internet and copies were also available at the Town Office. This process resulted in revisions to the plan intended to more accurately describe Whitefield’s situation and reflect the sentiment of the community, before the plan was presented to the for approval by the Town’s residents.

A comprehensive plan is only the first step of the planning process. In some cases, this plan recommends the establishment of several new local committees to implement the policies, gathering new information and refining actions to make them responsive to the needs and wishes of the community. Community involvement and fine- tuning of the plan are essential if it is to serve as an effective framework for local decisions.

While the plan recommends changes in ordinances that, if approved by the town’s citizens, could affect what persons may do with their properties, the plan essentially stresses voluntary compliance and the use of incentives that would both benefit landowners and facilitate wise land use. The plan also calls for greater flexibility in ordinances governing land use to encourage open space preservation and village development. Any change to an existing ordinance or a new ordinance will need to be approved at Town Meeting.

The bulk of the committee’s work, and a great deal of information about Whitefield, will be found in Appendix A, which contains the inventories of the eleven subject areas considered relevant to the town and its residents. Appendix B contains the maps cited in the inventories. Section 2 presents a history of the town; Section 3 elements of a vision of a future Whitefield; Section 4 the town’s goals for each of the inventory subject areas, a discussion of the findings of the inventories contained in the Appendix, and a listing of the issues and implications raised by the findings; and Section 5 presents the strategies by which the town will address the issues presented in the preceding section.

2. History of Whitefield

(This is an abstract of A Brief History of Whitefield 1760-2004, available through the Whitefield Historical Society.)

The Town of Whitefield, incorporated on June 19, 1809 as the 177^th town in the Province of Maine, began as the western half of a frontier settlement known as Ballstown Plantation. The eastern half of the plantation had split off in 1807 as the Town of Jefferson. The land was owned by the Kennebec Purchase Company, one of a group of speculative land companies from Boston that laid claim to vast tracts of land in Maine in the eighteenth century.

Although the forests of Ballstown were logged for years, and white pine trees suitable for masts for the King’s Navy were marked, settlement did not commence in earnest until after the end of the Indian Wars in 1760. Most settlers were not wealthy; they were looking only to establish homesteads for themselves and their children. Some settlers obtained legitimate grants from the proprietors, but many did not get legal title to their lands until after the courts had resolved difficulties with the Proprietors in 1815.

The political organization of the Ballstown Plantation is somewhat obscure. Apparently never incorporated under Massachusetts law, plantation meetings were not recorded until 1791. The plantation was named for Samuel Ball, who, with his son John, moved north from Alna in about 1770. Samuel and John mined limestone and ran a limestone kiln on the road to Weary Pond until about 1781 when they left town. John served in the Revolutionary War.

Not everyone came simply to establish a homestead. Some saw the wilderness as a place for gaining wealth from land speculation, lumber and mill operations. Mill sites on the Sheepscot River were actively sought out, not only by would-be settlers, but by investors, some of whom never lived here. The present three village areas of Kings Mills, North Whitefield, and Coopers Mills originated at the sites of the most important mills.

Great Falls (Kings Mills) was the first important mill location. A sawmill was erected in about 1774 by Jeremiah Norris. In the 1780s it became the property of Abraham Choate and his sons who added a grist mill. Benjamin King and his sons acquired the mills in 1801.The grist mill was used to generate electricity for the Ford brick house next to the mill until electric power came to Whitefield in the 1930s. The grist mill was destroyed by Hurricane Edna in 1954.

At Clary Lake, once Pleasant Pond, a mill complex built after 1791 provided a center for the North Whitefield settlement. At one time there were four mills at this site. At least two mills on the Sheepscot River at the foot of Grand Army Hill were operating in the early 1800s. Later a clothing mill, a carding mill and a shingle mill operated on this site. North Whitefield was known as Turner’s Corner for many years.

The other main mill site was at Coopers Mills, north of where the road now crosses the river. The first mills, one on each side of the river, were built about 1804. The mill on the east side of the river was acquired by Jesse Cooper of Newcastle whose son, Leonard, ran the mill and from whom the name of the village is derived.

Besides the Ball lime kiln on the Weary Pond Road, other early industries were granite mining and brick making from clay gathered from the river. A brickyard was located on the banks of the Sheepscot River in Kings Mills at the intersection of Head Tide and East River roads. Granite was used as the foundation stone for many houses. The Jewett Quarry located southeast of Weary Pond operated from 1850 to 1914. Blacksmith shops were scattered about town. Peter King, the son of the mill owner, was an ax grinder and had a shop near the mills. Gold was discovered on a farm on the Town House Road about 1881. Although a mine was dug and ore analyzed, it never provided the expected return and was abandoned. Gravel mining, originally carried out in small pits dug by hand, blossomed into a major industry, especially after World War II.

From earliest settlement and for at least 100 years, Kings Mills Village was the political center of the town. From Abraham Choate, Jr., in 1791 to Lore H. Ford in 1934, the town leadership always included a Choate/King/Ford family member. The political clout of the mill owners is apparent in the ruling of 1805 that no dam could ever be built upriver which blocked logs from reaching Kings Mills. There had been two mills about a mile upriver, the Turner/Preble mills dating to about 1775, which burned in 1803. These mills were never rebuilt after this ruling.

Their distance from the seat of government in Kings Mills prompted the residents of the Hunts Meadow and the Coopers Mills settlements to petition the state of Massachusetts in 1819 to redraw the northern boundary of Whitefield to make those settlements part of Malta (Windsor). The petition was opposed by the town and denied by the state. Again in 1843 when the Town House was built halfway between North Whitefield and Kings Mills, the Coopers Mills and Hunts Meadow people felt excluded from town meeting and voting. This building was relocated in 1989 to a site near the present school. It sits atop a new foundation where the Town Office is located. The 1843 structure now houses the Whitefield Historical Society. Voting is still held in the old Town House, although the town meeting has been held in the Whitefield Elementary School in North Whitefield for many years.

Many of our early settlers, especially around Kings Mills, could trace their roots to the Newburyport area where they or their parents had been touched by the preaching of the Reverend George Whitefield, an English evangelical Calvinistic minister who preached throughout the colonies from the 1730s to 1770. When the town was incorporated in 1809, it is likely that this group of settlers were instrumental in choosing a name that would honor George Whitefield. Although the First Baptist congregation built a meeting house in 1804, the location is not certain, probably at the corner of Hollywood Boulevard and Head Tide Road... It burned in 1868.

While the majority of Ballstown settlers came primarily from a Protestant and English heritage, Irish Catholic immigrants began arriving here about 1800. About 1820 Rev. Denis Ryan came to serve the Whitefield Irish community. The first Catholic Church, a wooden structure, was built in 1822 and named St. Denis to commemorate the French priests who first served the Catholic population of Maine. In the 1850s the present brick bell tower replaced the original wooden one. St. Denis Church is the only structure in Whitefield listed in the National Register of Historic Places. In about 1873, a convent for the Sisters of Mercy was built across the street from the church. The nuns also ran a school, St. Denis Academy, and later an orphanage. The convent burned in 1922 and was rebuilt as the present Parish Hall.

About 115 Revolutionary War veterans were living in Ballstown by 1800. In the War of 1812 nearly 100 Whitefield residents served. This war had a lasting effect on Whitefield’s economy because it devastated the maritime activity of the port of Wiscasset through which Whitefield lumber and wood products were shipped to overseas markets. Whitefield sent 117 men to the Civil War. The Spanish American War found several adventurous Whitefield men volunteering for action. Whitefield has also contributed its share of citizens to World War I, World War II, the Korean War, the Vietnam War, the Gulf War, and now the Iraq War. A Memorial was erected in Kings Mills in front of the Whitefield Union Church after World War II that listed all those who had served and died in that war. In 1993, a Memorial Park was established behind the Town House that honors the veterans of all wars.

While social interactions in Whitefield have traditionally revolved around church, neighborhood and farm interests, after the Civil War, benevolent societies aimed at improving local life sprang up. The Union veterans of the Civil War established an organization known as the Grand Army of the Republic (GAR). In about 1869, about 40 Whitefield veterans formed the Erskine Post #24 of the GAR. The GAR Hall in North Whitefield was completed in 1885. It also housed a free high school and has been important in the social and intellectual life of the town. The Whitefield Grange #101 was organized in Kings Mills in 1875. The Arlington Grange #528, was chartered in 1914 and met in North Whitefield in the GAR Hall, which it acquired in 1919. The hall is now known as the Arlington Grange Hall. In 1969,the Whitefield Grange merged with the Arlington Grange which continues to have suppers and programs today.

In 1899, the Whitefield Fish and Game Club was established as a conservation society pledged to care for the fish and game in the river and forests. The club joined forces with the Whitefield Grange to build the Whitefield Union Hall in Kings Mills in 1900. The Fish and Game Club was famous for its annual game suppers. It continued in operation until 1972.

Women also carried out benevolent activities. The Helping Hand Society at the Whitefield Union Church, organized in 1909, raised money by ice cream socials and “fancy” work (crocheting, hand-sewn articles, embroidery, etc.) The Willing Workers Club, organized in the Plains section of town in 1904 by eight women, raised enough money by sewing quilts and aprons to start a Sunday School, and eventually built a two-story chapel. After the fire departments were organized in the 1940s, the Women’s Auxiliaries held suppers and fairs to raise money.

The Gov. Kavanaugh Council, Knights of Columbus, was founded in 1909 at St. Denis Church. In 1956 a hall was built just below the church on Grand Army Road where game suppers were held. It was moved in 1998 to North Whitefield Village where it was remodeled into the Country Farm Restaurant. The Lions Club was organized in 1954 and is located in a remodeled schoolhouse in Coopers Mills. It provides a scholarship to Whitefield students and contributes to many community projects. The latest organization is the group known as the Senior Men who have generously responded to requests for help.

There are also three volunteer fire departments, one for each village. The North Whitefield Fire Volunteer Department was organized in 1944, the Kings Mills Department in 1947. After a devastating fire which wiped out the general store and post office in North Whitefield Village in 1948, a volunteer fire department was also organized in Coopers Mills in the 1950s.

The health needs of the community were met by home remedies and common sense. There are no doctors listed in the Ballstown records. In the 19^th and early 20^th centuries, doctors were available from Gardiner, Jefferson, Richmond and Alna, as well as in Whitefield. Among the beloved country doctors were A. R. G. Smith and Joseph E. Odiorne. In 1923, a dedicated local nurse, Katherine Morse, began a hospital at her home on the Town House Road, known as the Cottage Hospital. It was mainly for obstetrics and minor injuries and occasionally housed a few patients with mental illness. An addition was built for an operating (labor) room. In the 1990s the addition was detached and moved back from the road to house the Sheepscot Brewery, which is now located on Hollywood Boulevard.

Perhaps nothing demonstrates the influence of outside forces on Whitefield’s evolution more than the changes in population over the years since the earliest settlement, shown in the graph below. After about 60 years of rapid in-migration, Whitefield experienced a decline in population which continued for nearly 100 years. The Erie Canal and the mechanization of farm equipment favored large western farms and drove farmers to leave their farms all over New England. Some Whitefield farmers went west; others left for industrial centers where they could earn a living in the textile and paper mills or shoe factories. Even the Gold Rush claimed a few. The Whitefield farmers who remained survived by adding a variety of activities that brought in needed cash: wood products, such as barrels and shingles; leather tanning and shoe making. This diversification brought about a change in rural architecture, from free-standing houses and barns to the more efficient connected farmhouses that accommodated a variety of activities.

The arrival of the Narrow Gauge Railroad (the Wiscasset and Quebec, then the Wiscasset, Waterville and Farmington) in 1894 provided a welcome boon to the Whitefield economy. Lumber, milk and other farm products, barrels and eels trapped in the river were shipped to Wiscasset and then on to larger markets. Although heavily supported by the town, the railroad was always in financial trouble. The finishing blow was a derailment just below Whitefield station in Kings Mills in 1933. Although the tracks were removed to pay debtors, the route of the train through Whitefield is still visible from the surviving rail bed, now used by snowmobilers.

During the depression and after World War II, a slow trickle of people began to return to Whitefield. Some became dairy or poultry farmers. The broiler industry collapsed in the 1970s. Only several dairy farms exist today.

The sharp rise in population which began in 1970 coincides with the movement of “back-to-the-land” city dwellers, who began buying and restoring Whitefield’s abandoned farmhouses or who built houses on large tracts of former farm or forest land. Many of these were non-farmers whose work took them out of town but who maintained some relationship with the land. Some became sustenance farmers and developed crafts as a way of earning a living. The population rise over the last decade or so coincides with the continuing decline of farming and rapidly rising land values which have encouraged people with large holdings to sell their land. More and more farmland is being sold off in small parcels and fewer and fewer people earn their living in Whitefield. Social patterns are no longer dependent on neighborhood or farm interests. Not since the beginning of settlement, when the aboriginal forest was cut down and land cleared for farming, has there been such a potential for profound changes in the physical and social landscape of the town.

3. ELEMENTS OF A VISION FOR WHITEFIELD

Residents who responded to queries about why they moved to Whitefield, or what they wanted to change as little as possible, cited maintaining the community’s “rural character” as the future brings continued population growth, social change, and development. “Rural character” is not defined in this plan, and may have different meanings for different people, whether they are descendants of original settlers, multi-generational residents, or newcomers. The traditional economic bases of “rural character”, agriculture and forestry, have declined in importance. Whitefield has more houses, more cultural and socio-economic diversity, more traffic, and higher property taxes, to name a few changes. Ironically “rural character”, in Whitefield’s case, also means affordable property, in an attractive and friendly “rural” setting, the very reasons for the rapid increase in population and social change that most threaten to change the community. Where “rural character” once, years ago, may have meant stability and a great degree of individual independence with few restrictions on land use, change has occurred. As population and development increase controls are increasingly necessary to protect the health and safety of the community’s citizens, and to attempt to conserve those elements that the citizens value.

The elements listed below represent the Comprehensive Planning Committee members’ impressions of the most salient features of Whitefield’s “rural character”.

· A sense of community fostered through a broad understanding of and respect for the town’s history, its diverse population; support for the elementary school and its programs, community suppers and fund raising; the Town Meeting; restoration of old structures; locally-produced crafts, artwork, and food; places where people can gather such as Uncas Farm, the Union Hall, the school;

· neighborliness;

· farms and farmlands, with barns and silos, gardens, fields of corn and hay, glimpses of horses, cows, sheep, llamas;

· concentrated residential and commercial development in traditional “village” areas: North Whitefield, Coopers Mills, and along Route 17;

· unpolluted lakes, wetlands, rivers, and streams, habitats for various species and accessible to the public for recreation;

· scenic views of open space —fields and forest—and residential and commercial development sensitive to the value of such open space to the community;

· woods harboring songbirds, game birds, predators and large and small game--deer, moose, fox, raccoon;

· opportunities for various dispersed and organized forms of outdoor recreation—hunting, fishing, cross-country skiing, walking, bicycling, horseback riding, snowmobiling, boating, golf, swimming, soccer, baseball;

· country roads, some unpaved, with undeveloped corridors, light traffic, low speeds;

· a variety of small businesses, many of which are home-based, that provide employment and income to residents of Whitefield without significant negative impact on its scenic, rural, and environmental qualities.

· an efficient and effective municipal government mindful of the need for limited property taxation, meeting the needs of residents.

4. Goals and Policies

Whitefield’s comprehensive planning effort has produced extensive “inventories” of eleven subject areas relative to the future of the town and its residents: population and demographics; land use; local economy; housing; transportation; public services and facilities; recreational resources; cultural resources; historic and archeological resources; natural resources; and fiscal capacity. These inventories with their figures and tables contain a significant amount of information about the town and comprise Appendix A. The maps cited in the inventories comprise Appendix B.

This section contains the goal(s) for each inventory subject, presents a condensed discussion of the findings and issues, and proposes policies under which the issues will be addressed. Strategies intended to implement the policies appear in the next section.

1. Population and Demographics

Goal: Anticipate the rapid population growth of the community and develop policies and strategies that best serve this increasing population while preserving the community's rural, scenic, and natural qualities.

Discussion: As the fastest growing town in Lincoln County, Whitefield's population has doubled since 1970. A continuing high rate of growth accompanied by pressures for residential and service development is projected for the future [see Whitefield maps showing past and projected residential structures, Appendix B]. A decrease in family size accentuates the need for additional dwellings. As younger families move to the community in search of inexpensive housing, there will be an increase in the need for expanded school facilities. With the aging of baby boomers, there has been a dramatic increase in the 45-65 year-old group, suggesting a need for housing and facilities suitable for senior citizens in the coming decades.

Our survey has shown that high among the values which our citizens desire to conserve are Whitefield's rural character, scenic vistas, and natural resources. Our expanding population will bring increasing pressures for development with the threats of urban sprawl, increasing traffic, impairment of scenic vistas and natural resources, and demands upon the town for greater services.

Policy: Policies and implementation strategies to respond to this general goal are detailed in the sections that follow.

2. Land Use

Goal: Provide for orderly development while preserving open space, retaining forestry and agriculture, and protecting critical resources such as aquifers and environmentally sensitive areas.

Discussion: With significant residential growth, driven by relatively affordable land and low taxes, the rural character of Whitefield is being altered. Most residential development tends to occur along roadways, but as the corridors become lined with houses, subdivisions on interior lands will encroach upon important wildlife habitat. To date there are relatively few subdivisions, but given projected growth rates, improved roads and available land, more subdivisions are likely. Currently, there is a minimum lot size requirement of 1.5 acres along with road frontage requirements. At present, Whitefield's Subdivision Ordinance does not make allowances for alternative housing patterns that would promote open space, conserve rural character, and allow flexibility of development.

Gravel mining is a significant economic activity in Whitefield. Compliance with standards for reclamation and buffer zones has not been consistent.

A large aquifer, a major source of drinking water and vulnerable to pollution, runs through Whitefield from north to south under sand and gravel deposits.

There is no definition for types of commercial development that differentiates between high and low impact on the environment or residential values; such development can occur practically anywhere in the town.

Whitefield requires property owners to file a Notice to Build form prior to construction. This notice, approved by the Planning Board and the Code Enforcement Officer can assist the Board of Selectmen in assessing property in a timely and equitable manner and to monitor what type of development is occurring. Compliance with the requirement to file a NTB is estimated to be about 75%.

Policies:

1. The Town shall endeavor to manage land use and development through incentives, tax increment financing (TIF), and voluntary cooperation, without the use of zoning.

2. The Town shall make use of ordinances where necessary to promote orderly development, protect aquifers, prevent pollution of air and water, and ensure public safety.

3. The Town shall designate “preferred use areas” for purposes such as village development, business development, and protection of natural resources.

[“Preferred use areas” are not districts designated for legal restrictions on land use, but are rather areas for which voluntary cooperation, incentives, grants, etc., might be sought to achieve the goals of the comprehensive plan.]

3. Local Economy

Goal: Encourage economic growth and opportunity consistent with the town's rural character and scenic values.

Discussion: Despite Whitefield's rural setting, we are becoming a suburb of Augusta and the Mid-Coast area, with accompanying changes in employment profiles and commuting patterns. Once a farming community, the number of self-sustaining farms has diminished dramatically. Residential development will continue to compete with natural resource-based activities, and transportation corridors will become more heavily used by commuters.

Whitefield has a large number of gravel deposits, a resource being extracted for use in construction throughout the region. Gravel transportation can accelerate the degradation of the town's transportation network.

Whitefield has a number of small and home-based businesses, including garden farms, home professional businesses, and seasonal occupations that are critical to the livelihood of the town.

Some areas are more suitable for business development than others. There is currently some clustering of businesses in Coopers Mills and North Whitefield. Except for limitations imposed by Shoreland Zoning there is little to preclude any type of business from locating anywhere in town.

While Whitefield receives economic development representation from the Lincoln County Economic Development Office, our town has no economic development strategy, local program, or organization to promote economic activity in the community.

Policies:

1. The Town shall encourage the continuation of rural and resource-based activities such as forestry and farming.

2. The Town shall create a comprehensive approach to economic development which complements the town's rural character.

3. The Town shall attract and encourage appropriate business development.

4. Housing

Goal: Encourage the development of new housing and fuller use of existing housing to accommodate a growing and aging population

Discussion: While Lincoln County's growth rate from 1990 to 2000 in single family dwellings was 19%, Whitefield's increase in single family homes was 33%. Affordability of housing appears to be a significant factor driving rapid population growth. Twenty-four percent of new dwellings were mobile homes. While there was an increase in population, household size declined, indicating a further requirement for single-family homes in the future. The town's aging population will result in an increasing demand for senior, assisted and multifamily living situations.

At present there are no building codes to ensure the safety of new dwellings.

Policies:

1. The Town shall create greater flexibility in lot size requirements in order to preserve open space while minimizing sprawl, and permitting village and multi-unit development.

2. The Town shall encourage full utilization of existing housing such as use of accessory units.

3. The Town shall encourage the development of housing suitable for senior citizens such as multi-unit development and assisted living facilities.

4. The Town shall ensure that new housing meets the minimum requirements for safety.

5. Transportation

Goal: Improve the safety, efficiency, and scenic character of the town's transportation network.

Discussion: Increased development will lead to increased traffic on Whitefield's roadways, and road improvements may be associated with increased speed. The Town lacks standards for new and existing roads and bridges that both ensure quality and safety and protect scenic values. The Town does not have a long-range plan for bridge replacement and roadway improvement.

Policies:

1. The Town shall continue to improve the quality of its transportation network.

2. The Town shall strive to improve the safety and usability of our roads and corridors.

3. The Town shall strive to retain the scenic character of our transportation network.

6. Public Services and Facilities

Goal: Provide services and facilities that are effective, efficient, and adequate to meet the needs of the citizens of Whitefield.

Discussion: The existing town office is inadequate for the amount of business currently conducted, and service demands will increase with the expanding population. There is no adequate and comfortable space for meetings of boards and commissions. Space and security provisions for town records are inadequate for future needs. There is no long-range plan for financing, maintaining, and/or replacing town facilities. There is no capital improvement fund setting aside money for future capital improvements.

The town water supply was found to contain bacteria and may need to be treated or another source may need to be developed. Requirements for trash disposal may increase as the population grows.

The Coopers Mills Dam is in poor condition and hinders fish passage.

The year 2009 is the Bicentennial Year for Whitefield; a warrant article was passed in 2004 to start a fund to pay for a celebration.

The school requires capital improvements and additional space may be required in the future to meet anticipated population growth.

There is no transportation for secondary school students, a factor in school dropout.

Policies:

1. The Town shall plan for the long-term maintenance, development, or replacement of facilities.

2. The Town shall safeguard the Sheepscot River as a major resource for Atlantic salmon preservation and for recreation.

3. The Town shall ensure the safety of the town water supply.

4. The Town shall support the Whitefield Bicentennial Celebration.

Fire and Rescue Services:

Discussion: From north to south the town of Whitefield is15 miles long. This extensive range is served by three separate fire associations. Converting to a single, municipal department would lead to administrative efficiencies, but would add a problem of timely emergency response. Moreover, consolidation could add significantly to the tax burden due to the loss of private fund-raising efforts currently carried out separately by each association.

While there is a First Responder unit, the Town does not have its own rescue service.

The Town does not have a long-range plan for apparatus and equipment replacement.

Personal and business insurance costs of Whitefield citizens could be lower with a better Insurance Standards Organization (ISO) rating.

The major problems facing the volunteer fire associations are the aging of volunteers and the difficulties in recruiting, training, and retaining personnel.

Policies:

1. The Town shall continue to support three local fire associations, as well as a rescue service.

2. For the fire services, the Town shall develop a long-range plan for equipment replacement, maintenance of services, and personnel replacement.

7. Recreational Resources

Goal: Enhance recreational opportunities for Whitefield residents.

Discussion: As the town grows and becomes more suburban, the demand for higher- intensity recreational areas (ball fields, gymnasiums, etc.) will likely increase. Existing resources are limited and could be overwhelmed. Lower-intensity recreation areas (for hiking, hunting, etc.) tend to be privately-owned. Projected growth and changing community values (contrary to a strong tradition of public access to private land) could reduce available private land or access to resources in the future. Access points to the Sheepscot River are limited and lack appropriate parking. Walking, biking, and running on town roads are becoming more dangerous as volume and speed of traffic increases. ATVs are often unwelcome on private land.

Snowmobile registration revenues are used by the local snowmobile club to maintain trails without consideration of other recreational opportunities that could be supported.

Policies:

1. The Town shall improve its ability to respond to changing recreation needs.

2. The cost and funding of facilities shall be determined on an individual project basis.

3. The Town shall increase the number and improve the quality of recreational facilities that it provides.

4. The Town shall support efforts to keep as much private land open and accessible to the public as is possible.

8. Cultural Resources

Goal: Ensure that Whitefield residents have access to cultural events, programs, and facilities.

Discussion: The Whitefield Elementary School is the only public facility generally available for group activities. The lack of a public library limits access to library services, including computer access and training. There are no public programs targeting the needs of our growing number of senior citizens.

Policies:

1. The Town shall provide adequate and appropriate space for cultural activities.

2. The Town shall support the efforts of private organizations that provide cultural programs and opportunities to Whitefield residents.

9. Historic and Archaeological Resources

Goal: Ensure the appreciation of our historical heritage by Whitefield residents through education, and preservation of and access to historical features such as houses, cemeteries, and records.

Discussion: Whitefield, with an interesting colonial and post-colonial past, has a large number of historically significant structures, and records. Residents tend to have a limited appreciation of local history. The only structure presently on the National Register of Historic Places is the St. Denis church. There is no survey of other buildings in the community that might qualify for the National Register of Historical Places. Several important cemeteries are in disrepair; there is no plan for prioritizing and funding restoration of town-owned cemeteries. In addition there are potential archaeological sites that have not been investigated. Historical town records are subject to deterioration because of insufficient storage facilities.

Policies:

1. The Town shall preserve important historic sites and archaeological resources.

2. Whitefield shall seek to restore the Town’s cemeteries.

3. The Town shall ensure the preservation of historic records.

10. Natural Resources

Goal: Preserve for future generations the quality of our town's natural resources, including water bodies, aquifers, wetlands, wildlife habitat, and agricultural and forest resources.

Discussion: Rapidly changing land use, resulting from population pressures and development, could threaten our natural resources including water, fragile soils, and wildlife. Water quality impacts the genetically distinct and naturally reproducing Atlantic salmon population of the Sheepscot River. (The Atlantic salmon is on the federal Endangered Species list.) We have a 300 foot shoreland buffer zone, but compliance with this in the future is not ensured. As road corridor sites for development become scarce, development into the backland will become more common, intruding on large blocks of wildlife habitat. The town's aquifers are vulnerable to pollution that could make drinking water unsafe. While restrictions apply at present, there is no means under existing ordinances to prohibit permanent structures on sites that could be inundated by a 100-year flood. Whitefield does not belong to the Federal Flood Insurance Program.

Policies:

1. The Town shall develop plans to guide protection of our natural resources.

2. The Town shall enforce existing ordinances established for the protection of natural resources and modify them as needed.

3. The Town shall identify and preserve areas with important wildlife habitat.

4. The Town shall update or expand development performance standards with regard to environmental protection.

5. The Town shall support and advance agriculture and forestry.

11. Fiscal Capacity

Goal: Maintain the Town's fiscal soundness and provide a stable, fair and equitable level of funding for education and municipal services.

Discussion: Some forms of State aid are based on valuation. Whitefield's valuation is substantially less than the State’s valuation which is based on current property sales information. Given the same level of municipal income and expenditures, increased local valuation would result in a lower tax (mill) rate.

Noncompliance with the Town’s required Notice to Build hampers fair and timely adjustment of valuations.

Policies:

1. The Town shall ensure that Whitefield's real estate valuation is fair, timely, and exceeds the State’s minimum assessment ratio of 70%.

2. The Town shall ensure that the provision of municipal and education services is as cost-efficient as possible.

5. Implementation Strategies

The following strategies are designed to implement the policies that address the issues for each Inventory subject as summarized in the preceding chapter and stated more fully in Appendix A.

1. Population and Demographics

Policies: Policies and implementation strategies to respond to this general goal are detailed in the sections that follow.

2. Land Use

Policies:

1. The town shall endeavor to manage land use and development through incentives, tax increment financing (TIF), and voluntary cooperation, without the use of zoning.

Strategies:

A. The Planning Board should propose amendments to ordinances pertaining to minimum lot size, road frontage, and subdivisions to permit cluster development and multi-family units, i.e., smaller lot sizes and/or greater density in a portion of the tract in exchange for permanent dedication of a portion of the land for open space. Seek town approval in 2007.

B. The Planning Board will consider the recommendations of the Conservation Commission and propose amendments to ordinances to allow for voluntary transfer or purchase of development rights so that environmentally sensitive areas can be protected in exchange for smaller lot size/higher density or other features beneficial to the developer at development locations. Seek town approval in 2007/2008.

C. The Planning Board, following the recommendations of the Economic Development Committee, should draft a business development ordinance to identify incentives such as smaller lot size, tax abatement, or technical assistance in buffering, etc., in exchange for businesses locating in areas designated as most appropriate for business development; create appropriate formal definitions of different types of businesses including home-based, commercial activities, and development in view of anticipated significant impacts on traffic levels or environmental and scenic values; and establish "good neighbor" performance standards such as buffering, setback, noise, lighting, and parking requirements for businesses to minimize adverse impact on the town’s rural character. Seek town approval in 2008.

2. The Town shall make use of ordinances where necessary to promote orderly development, protect aquifers, prevent pollution of air and water and ensure public safety.

Strategies:

A. The Planning Board should ensure that the Town’s requirement to file a Notice to Build form is widely understood and is fully complied with by residents, and that the Selectmen are made aware of approved NTBs to permit fair and timely evaluation of new construction for assessment purposes and to monitor rates and types of development. Ongoing.

B. The Planning Board should review all land use ordinances to ensure that: (1) performance standards are adequate to serve this policy; and (2) definitions are clear, precise, and easily understood. If amendments are needed seek town approval in 2007 or concurrently with other amendments to ordinances.

C. The Conservation Committee should propose to the Planning Board performance standards for aquifer protection. Seek town approval in 2008.

D. The Code Enforcement Officer should enforce all ordinances fully and consistently. Ongoing oversight and support by Selectmen and Planning Board.

3. The Town shall designate “preferred use areas” for purposes such as village development, business development, and protection of natural resources

Strategies:

A. The Conservation Committee should identify and recommend (2007) to the Planning Board those areas of the town that are environmentally sensitive, or have unique rural or scenic qualities that should have the highest priority for conservation or protection. Seek town approval in 2008, if needed.

B. The Economic Development Committee should recommend (2007) to the Planning Board for designation “business development” overlay areas in which incentives for locating certain types of business would be present. Seek town approval in 2008.

C. The Planning Board should define and propose the reduction of the minimum lot size requirements in “village” areas. Seek town approval in 2008.

3. Local Economy

Policies:

1. The Town shall encourage the continuation of home-based businesses and rural and resource-based economic activities such as forestry and farming.

Strategies:

A. The Board of Assessors (Selectmen) should support and encourage landowners to preserve use of their open land by means of the Farmland Current Use, Tree Growth Current Use, and Open Space Current Use Tax Programs by increasing awareness of the tax incentives these programs include. Ongoing.

2. The town shall create a comprehensive approach to economic development that complements the town's rural character.

Strategies:

A. The Selectmen should appoint an Economic Development Committee to: develop a plan for: encouraging appropriate business development; ensuring a healthy future for farming and forestry; and identifying benefits and costs of different industries and propose strategies for minimizing costs. Seek town approval in 2006.

3. The Town shall attract and encourage appropriate business development.

Strategies:

A. The Selectmen, on advice from the Economic Development Committee, should create a formal Tax Increment Financing (TIF) policy as well as other economic development incentives to help attract and locate appropriate businesses. Seek town approval in 2008.

B. The Planning Board should encourage home-based business where there will be minimal impact on road traffic and environmental and scenic values, and should develop strategies to encourage the location of commercial enterprises in “preferred use” districts when there will be significant impact on traffic as well as on environmental and scenic values. Seek town approval in 2008.

4. Housing

Policies:

1. The Town shall create greater flexibility in lot size requirements in order to preserve open space and minimize sprawl, permit village and multi-unit development, and encourage fuller use of existing structures.

Strategies:

Refer to the strategies in Section 2, Land Use.

2. The Town shall encourage the development of housing suitable for senior citizens such as multi-unit development and assisted living facilities.

Strategy:

The Planning Board should review ordinances to ensure that they allow construction of assisted-living and multi-family living situations suitable for senior citizens. If they do not, amendments should be proposed. Seek town approval in 2008, if necessary.

5. Transportation

Policies:

1. The Town shall continue to improve the quality of its transportation network

Strategies:

A. The Selectmen should appoint a Transportation Advisory Committee to conduct research and survey local opinion, and advise them and the Road Commissioner on implementation of these strategies. 2006

B. The Transportation Advisory Committee should recommend to the Selectmen a maintenance and improvement plan that monitors the condition of roads, bridges, and culverts and schedules improvements so that these costs have minimal impact on the town’s budget. 2007.

C. The Selectmen should adopt minimum standards for acceptance of new roads (sight distances for driveways, drainage provisions, width standards) to avoid financial liability in upgrades, and develop criteria for when and if gravel roads should be paved. 2007.

D. The Selectmen should work with neighboring communities to resolve regional transportation issues. Ongoing.

E. The Transportation Advisory Committee should explore methods to encourage car-pooling and other measures to reduce commuter traffic. 2007.

2. The Town shall strive to improve the safety and usability of our roads and corridors.

Strategies:

A. The Road Commissioner should monitor the accident rates at intersections and other locations and recommend to the Selectmen improvement of those considered most dangerous. Ongoing

B. The Selectmen, on advice of the Road Commissioner and the Transportation Advisory Committee, should consider guidelines for curb cuts and other safety-related issues and adopt standards, perhaps similar to those of the State Department of Transportation. 2007.

C. In conjunction with road improvements, the Selectmen should seek to expand the shoulders of important roads to allow safe pedestrian and bicycle use. Ongoing.

D. As roads improvements are made, the Selectmen should provide limited parking within the right-of-way as needed (e.g., for canoe access to the Sheepscot River). Ongoing.

3. The town shall strive to retain the scenic character of our transportation network.

Strategy:

The Transportation Advisory Committee, in conjunction with the Conservation Committee and other groups, should identify scenic vistas of high value, trees, and other features that should be preserved, and monitor proposed road improvements to ensure that they do not significantly change the rural character of the town’s transportation corridors. Ongoing.

6. Public Services and Facilities

Policies:

1. The Town shall plan for the maintenance, development, or replacement of facilities over the long range.

Strategies

A. The Selectmen should create a planning process to examine the need for new facilities (town office, School Superintendent's office, community center, fire station, water supply) and appropriate use(s) for the property recently acquired by the town adjacent to the location of the current town office. 2007

B. The Selectmen should review and refine this pan to create a long-range capital improvement plan for the maintenance and/or replacement of facilities. 2007.

C. Table 6.7 presents a draft major capital improvement plan. The Selectmen should review and refine such a plan, create a capital improvement fund, and set aside funds for capital improvements as they become necessary. Seek town approval 2007.

D. The Town office staff, in conjunction with the Whitefield Historical Society, should continue the town records restoration project, which should include an inventory of records, provision for safe and secure storage facilities, and records and minutes of meetings backup. Ongoing.

E. The Selectmen should continue the town’s participation in the Lincoln County Recycling Program. Ongoing.

F. The Selectmen should explore ways to collaborate with other towns to reduce costs while improving the quality of goods and services. Ongoing.

2. The Town shall safeguard the Sheepscot River as a major resource for Atlantic salmon preservation and for recreation.

Strategy:

A. The Selectmen should support the Sheepscot Valley Conservation Association in its effort to protect the river system. Ongoing.

B. The Conservation Committee should work with the SVCA, other committees, and groups to study the environmental costs and benefits of removal of the Coopers Mills Dam. 2007.

3. The Town shall ensure the safety of the town water supply.

Strategy:

The Selectmen, with the School Committee, should monitor the bacterial count of the school well and, if needed, consider acquiring a treatment system or finding another source of water. Ongoing.

4. The Selectmen shall continue town support for the Whitefield Bicentennial Celebration

Strategy:

The Selectmen should continue to support contributions of town funds to the fund for the 2009 celebration. Seek town support for funding 2006, 2007, 2008.

5. The School Committee shall continue to work with the Selectmen, Budget Committee, and School Union to contain the escalating costs of operating the school.

Strategies:

The School Committee, Selectmen, and School Union should contain costs by:

(1) Establishing a long-range plan for capital improvements, replacement of buses, technological, office and classroom equipment, furnishings, books and supplies; 2007

(2) Using bidding, locked-in pricing, and regional cooperative efforts to reduce costs. Ongoing.

6. The Town shall continue to support three local fire associations, as well as a rescue service.

Strategies:

A. The Selectmen should support the three local fire associations in their fundraising activities. Ongoing.

B. The Selectmen, in conjunction with officers of the fire associations, should study the feasibility of a new fire/rescue station as part of a new town office complex (see Strategy 6.1.A). 2007.

C. The Selectmen should support funding for the Whitefield Rescue Service. Ongoing.

2. The Town shall develop a long-range plan for equipment replacement, maintenance of services, and adequate personnel for the fire services.

Strategies:

A. The fire departments should identify current deficiencies in the fire services and initiate processes to upgrade existing capabilities to achieve a lower ISO rating. 2007.

B. The fire associations should explore and recommend additional benefits and other measures to recruit new fire and rescue personnel and ensure that their training meets state and federal requirements. Ongoing.

7. Recreational Resources

Policies:

1. The Town shall improve its ability to respond to the changing recreational needs of its citizens.

Strategies:

A. The Selectmen should appoint a Recreation Committee to monitor recreation resources, ensure their maintenance, and facilitate discussion with recreational organizations and landowners. 2006.

B. The Recreation Committee should develop a recreation plan, with recommendations to the Selectmen. 2007.

2. The cost and funding of facilities shall be determined on an individual project basis. Ongoing.

3. The Town shall increase the number and improve the quality of recreational facilities that it provides.

Strategies:

A. The Recreation Committee should seek funding for recreational facility development and programs from fees, grants, donations, etc. Ongoing.

B. The Recreation Committee should work with the Lions Club and collaborate with others to ensure the recreational plan for the town property on Route 17, the Harold B. Olsen Recreational Area, complements the changing recreational needs of the town. 2006,2007.

C. The town property on Townhouse Road should be used as a starting point for developing, in conjunction with private landowners, a multi-use trail network.

D. The Recreation Committee should seek ways to better utilize our network of lakes, ponds, and rivers by providing access and parks. Ongoing.

E. The Selectmen should support the Town’s acquisition of public access rights at the western end of Clary Lake for waterfowl hunting, fishing, and skating. Ongoing.

4. The Town shall encourage keeping as much private land open and accessible to the public as possible.

Strategies:

A. The Recreation Committee should encourage private landowners to make land accessible by developing, in conjunction with landowners, ground rules for public access and conditions for continued availability, educational materials, etc., and should coordinate with the Whitefield Athletic Association, Lions Club, Snowmobile Club, and others to expand formal access, provide signage and post ground rules and conditions of use. Ongoing.

8. Cultural Resources

Policies:

1. The Town shall provide adequate and appropriate space for cultural activities.

Strategy:

The Selectmen should study the feasibility of a town center that would include the town office, a community center, and other facilities for cultural and recreational activities (see Strategy 6.1.A). 2007.

2. The Town shall support the efforts of private organizations that provide cultural programs and opportunities to Whitefield residents.

Strategy:

The Selectmen should provide space in Town mailings to residents for cultural organizations to describe their activities. Ongoing.

9. Historic and Archaeological Resources

Policies:

1. The town shall preserve important historic sites and archaeological resources.

Strategies:

The Selectmen should continue to support the Whitefield Historical Society in its efforts to implement these policies. The Society, in conjunction with appropriate experts, should supervise the identification, mapping, evaluation, marking and cataloging of historical sites, and education of landowners and the general public about these sites through programs and publications. Activities would include:

(1). A survey to identify structures and sites of historic significance; 2007

(2). Education of current landowners about the historic significance of their properties and encouragement to protect historic features; Ongoing.

(3). In conjunction with the Maine Historic Preservation Commission, investigation of potential archeological sites on the shores of Clary Lake and the Sheepscot River. Ongoing.

2. Whitefield shall seek to restore Town-owned cemeteries.

Strategy:

The Selectmen should earmark a percentage of cemetery trust funds to restore old, town-owned cemeteries and encourage volunteer efforts to support the project. Ongoing.

3. The Town shall ensure the preservation of its historic records.

Strategies:

A. See Strategy 6.1.D.

B.. The Historical Society should develop guidelines for public use of historic records to be recommended to the Selectmen. 2006.

10. Natural Resources

Policies:

1. The Town shall develop plans to guide protection of our natural resources.

Strategies:

A. The Selectmen should appoint a Conservation Committee to monitor and advocate for protection of natural resources. Ongoing.

B. The Conservation Committee should propose a Natural Resources Protection Plan to the Selectmen, seek grants, coordinate with other organizations, and develop educational opportunities for promoting the wise use of natural resources, and advise the Selectmen and Planning Board. Ongoing.

2. The Town shall enforce existing ordinances established to ensure the protection of natural resources and modify them as needed.

Strategies:

A. See Section 2, Land Use, Strategy 2.2.B.

3. The town shall identify and preserve areas with important wildlife habitat.

Strategies:

A. The Conservation Committee should identify the most important wildlife habitat areas as wildlife “preferred use” areas; work with landowners to seek voluntary protection of important wildlife areas; and together with the Selectmen explore strategies such as grants for purchase and transfer of development rights to preserve important habitat areas. Ongoing

4. The Town shall update or expand development performance standards with regard to environmental protection.

Strategies:

A. See Section 2, Land Use, Strategies 2. A-D and 3. A, B.

B The Planning Board should consider a Flood Plain Ordinance and prepare recommendations for or against joining a National Flood Insurance Program. 2007.

5. The Town shall support and advance agriculture and forestry.

Strategies: See Section 3, Local Economy.

11. Fiscal Capacity

Policies:

1. The Town shall ensure that Whitefield's real estate valuation is fair, timely, and within State conditions.

Strategies:

A. The Selectmen (Board of Assessors) should review the assessment process and ensure timely and equitable valuation that at least exceeds the State’s minimum

assessment ratio of 70%. Ongoing

B. The Selectmen should ensure compliance with the Town’s required Notice to Build and be made aware by the Planning Board of NTBs as they are processed. (see Strategy 2.2.A) Ongoing

2. The Town shall ensure that the provision of municipal and education services is as cost-efficient as possible.

Strategies:

A. Selectmen, School Committee, and Budget Committee should continue their efforts to efficiently manage budgets. Ongoing.

B. The Selectmen should study how current and projected development patterns are likely to impact the town's budgets for education and general services and make necessary adjustments in planning (See Public Services and Facilities Section). Ongoing

APPENDIX A: INVENTORIES

Page

A-1. Population and Demographics…………………..30

A-2. Land Use………………………………………….. 37

A-3. Local Economy…………………………………….41

A-4. Housing……………………………………………..44

A-5. Transportation………………………………………48

A-6. Public Facilities……………………………………..58

A-7. Recreation Resources……………………………..72

A-8. Cultural Resources…………………………………76

A-9. Historic and Archaeological Resources………….79

A-10. Natural Resources…………………………………83

A-11. Fiscal Capacity……………………………………..91

A-1. Population and Demographics

Population Change

In the last 30 years, our town's population has doubled in size, from 1,131 residents in 1970 to a new high of 2,273 in 2000.

Figure 1.1. Whitefield’s Historical Population Change

Source: Maine State Planning Office

The prior peak of population was in the1840’s when more than 2,150 people lived in town. A period of steady decline bottomed out in the 1920’s when the town was less than half its original size (see the Historical Section for a discussion of possible reasons). This was followed by steady, moderate increase until the mid-70's when a period of rapid population growth began. Between 1990 and 2000 Whitefield grew by 18%. (See Table 1.1) Alna and Windsor grew at similar rates and Jefferson also had significant growth, but less than ours. Pittston and Chelsea grew modestly, while the population of the nearest urban area, Augusta, declined by 13%. In the 1990's Whitefield grew faster than Lincoln County as a whole (11%); the State grew by only 4%.

Table 1.1. Population Change, 1970 - 2000

	1970	1980	1990	2000	% Change, 1990 – 2000
Whitefield	1,131	1,606	1,932	2,273	18%
Alna	315	425	573	675	18%
Windsor	1,097	1,702	1,895	2,204	16%
Jefferson	1,242	1,616	2,111	2,388	13%
Lincoln County	20,537	25,691	30,357	33,616	11%
Maine	992,048	1,124,660	1,227,928	1,274,923	4%
Pittston		2,267	2,440	2,548	4%
Chelsea	2,095	2,522	2,483	2,559	3%
Augusta		21,819	21,325	18,560	-13%

Source: US Census

The Maine State Planning Office projects that Whitefield’s population will reach 2,451 residents in 2005, 2,590 residents in 2010, and 2,685 residents in 2015 (Figure 1.2). While this rate is slightly lower than our experience in the last three decades, it still represents a significant amount of change.

Figure 1.2. Projected Population Change

Source: US Census, Maine State Planning Office

This projected growth rate is higher than surrounding communities, the county, and the State as a whole. Moreover, there are reasons to believe that even these projections may underestimate actual growth; SPO uses a formula applicable to the State in general, while there are specific factors such as the new Augusta bridge connecting to I-95 and the Wiscasset By-Pass that may contribute to the rate of growth. In any event, as a result of continuing population increase, the town will be under pressure to expand services and facilities.

Household Change

In 2000, the number of households in Whitefield reached 849, an increase of 34% since 1990. This rate of growth is significantly larger than surrounding communities, Lincoln County, and the State as a whole (Table 1.2.).

Table 1.2. Household Change, 1980 - 2000

	1980	1990	2000	% Change 1990 – 2000
Whitefield	492	635	849	34%
Windsor	553	685	846	24%
Jefferson	542	760	945	24%
Pittston	712	840	1,010	20%
Lincoln County	9,494	11,889	14,158	19%
Alna	not available	226	266	18%
Chelsea	690	831	959	15%
Maine	395,184

1. Introduction

2. History of Whitefield

3. ELEMENTS OF A VISION FOR WHITEFIELD

4. Goals and Policies

1. Population and Demographics

2. Land Use

3. Local Economy

4. Housing

5. Transportation

6. Public Services and Facilities

7. Recreational Resources

8. Cultural Resources

9. Historic and Archaeological Resources

10. Natural Resources

11. Fiscal Capacity

5. Implementation Strategies

1. Population and Demographics

2. Land Use

3. Local Economy

4. Housing

5. Transportation

7. Recreational Resources

9. Historic and Archaeological Resources

10. Natural Resources

11. Fiscal Capacity

A-1. Population and Demographics