HomeMy WebLinkAboutFINAL DRAFT 041909 LWS2
TABLE OF CONTENTS
EXECUTIVE SUMMARY……………………………………………………………………………... 3
GLOSSARY……………………………………………………………………………………….....13
INTRODUCTION …………………………………………………………………………………...20
CHAPTER 1: GOALS AND POLICIES STATEMENT ………………………………………………. ... 33
CHAPTER 2: LAND USE ………………………………………………………………………… ...44
CHAPTER 3: HOUSING …………………………………………………………………………… 49
CHAPTER 4: ECONOMIC DEVE LOPMENT ……………………………………………………… ... 53
CHAPTER 5: NATURAL AND CULTURAL RESOURCES ……………………………………….….. ... 59
CHAPTER 6: OPEN SPACE AND RECREATION ……………………………………………………. 63
CHAPTER 7: SERVICES AND FACILITIES ……………………………………………………….. …66
CHAPTER 8: CIRCULATION (TRANSPORTATION) ………………………………………………… 81
CHAPTER 9: IMPLEMENTATION PROGRAM …………………………………………………… …86
APPENDIX………………………………………………………………………………………..104
ACKNOWLEDGMENTS……………………………………………………………………………105
COVER PHOTO COURTESY OF ROB BENCHLEY
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EXECUTIVE SUMMARY
State law requires a Master Plan for the Town of Nantucket. This document updates the
expiring Goals & Objectives of 1990, and advances aspects of the Comprehensive
Community Plan (CCP). It provides a legally defensible standard for zoning changes,
and brings the community further into compliance with anticipated changes to the state’s
enabling laws.
The Plan is a basic guideline for the physical development of the island. It is an active,
fluid, and evolving document, resulting in specific and relevant proposals for
implementation by local boards and commissions, or by Town Meeting. It is intended to
be relevant for at least 10 years, but ideally 20. Elements will be periodically updated.
Its focus is on physical development, such as density, infrastructure, and undeveloped
areas, and it explains Town and Country Overlay concepts (TOD and COD). The Plan
contains a demographic profile and targets significant, population-based issues, such as
housing. It sets forth a discussion of the importance of the zoning bylaw as the
foundation and outline for the future development of the island.
CH. 1: GOALS & POLICIES STATEMENT
Goals and policies for the Town were developed through an interactive public process,
conducted from 2005-2009, documented by a timeline, with methodology explained in
the text. This chapter includes a vision for the physical development of Nantucket,
articulated through the Planning Board and Staff. The vision is based on the detailed
review of prior documents, experience with land-related issues, survey results, non-
binding ballot questions, and public comment. It explains the intent of the TOD and the
COD, and describes how each will function, based on existing patterns and uses.
Chapter 1 presents the Plan’s overall Mission Statement:
“To create and sustain a healthy community, one whose residents have stability and
security, with resources protected for future generations.”
It states the community values for the Plan, as adopted by the Planning Board:
Protect the quality of residential districts of Nantucket.
Protect open spaces and natural resources.
Enhance the ability of Nantucket residents to live and work on the island.
Protect the historical integrity of the landscape and buildings.
Maintain a strong, tourism-based economy.
Maintain access to beaches and open space.
Provide a healthy environment for all residents.
The chapter then presents specific goals and policies pertaining to: Land Use, Housing,
Economic Development, Natural and Cultural Resources, Open Space and Recreation,
Services and Facilities (infrastructure), and Circulation (transportation).
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CH. 2: LAND USE
Zoning was not adopted on Nantucket until 1972. To date, years of steady growth have
resulted in compromised situations that will need to be addressed, such as industry
located within the wellhead recharge district and residential neighborhoods, and
moderate-density areas lacking in services such as water and sewer.
Chapter 2 stresses the critical importance of a fluid Zoning By-law that addresses
problem areas under the framework of the Town and Country concept, and illustrates the
division of zoning districts into the TOD and the COD by density. It states that the island
must incorporate urban, suburban, and rural aesthetics for different areas.
The Land Use section maps commercial nodes, and explains the most recent zoning
district designations adopted at Town Meeting, in order to further define village centers. It
includes mapped Planning areas for zoning changes, as well as zoning inconsistencies
within the Town and Country Overlay Districts.
CH. 3: HOUSING
As a popular resort community, Nantucket has faced the problem of housing its year-
round residents and seasonal employees for decades. As an island, action must be
taken to avoid the loss of community if Nantucket’s workforce could no longer afford to
live here. With a median home price of $1,475,000, as of September, 2008, and rental
prices reflecting high property values, affordable housing has been increasingly difficult
to obtain. Nantucket has attempted to encourage private production of affordable and
moderate income housing through zoning incentives, but these have yet to yield an
amount of units in accordance with their intent.
Affordable housing for lower income households (earning less than 80% of the area’s
median income) is deficient under state law, which requires that 10% of year-round units
be accessible for these families and individuals. Currently, only 3% of Nantucket’s year-
round units meet that designation. Most of those units are owned and operated by the
Nantucket Housing Authority. Additional units have been constructed within 40B
developments, elder housing facilities, or through Habitat for Humanity. It is imperative
that the Town continues to promote programs that increase the affordable housing stock
to meet state guidelines and local need.
Affordable housing for moderate income households (earning less than 150% of median
for the area) has presented challenges as well. In 2002, Annual Town Meeting approved
a home rule petition, later accepted by the state, that created the Nantucket Housing
Needs Covenant (NHNC), which allows separate ownership of multiple dwellings on one
lot, with a covenant placed on one of the units deeming that it be sold below market rate,
to a qualified buyer. In 2008, ATM voted to modify the definition of affordable housing in
the Zoning Bylaw to include moderate income housing, allowing density bonuses in
subdivisions to apply to households earning up to 150% of median. Despite these
measures, the anticipated level of production has not been achieved.
Employee housing, both year-round and seasonal, is an on-going issue. Dormitories are
allowed, by special permit in the TOD, and in the COD, but only on or adjacent to
properties containing existing commercial use. The inclusionary housing unit aspect of
Major Commercial Development (MCD) permitting needs to be updated to reflect current
practices. Accessory apartments are allowed in all zoning districts, but the restrictive
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nature of their requirements preclude these units from contributing to housing for the
seasonal workforce.
The Multi-Family Overlay District (MFOD), which allows one dwelling unit per 2,500
square feet of lot area, has been successful in creating year-round housing at attainable
prices. Since 2000, 135 units have been permitted under this program.
Elderly and special needs housing is allowed in the Limited Commercial (LC) district, as
well as special districts created around existing facilities. Options to allow additional
facilities in other zoning districts need to be explored, and spot zones must be
eliminated.
CH. 4: ECONOMIC DEVELOPMENT
Nantucket’s economy is diverse, supported by seasonal and year-round workforces, with
peak summer season representing the height of employment. Historically, the
unemployment rate for Nantucket has been below the state averages. The concentration
of retail businesses, restaurants, offices, and service establishments are mainly within
the downtown and the mid-island area.
The downtown core of Nantucket is the symbolic center of the island. Built prior to
zoning, the downtown core cannot meet many standards, such as parking, height, and
loading zones. Rising rental costs are changing the year-round economy downtown, and
concerns have been expressed regarding the closing of long-established businesses,
which have been replaced by seasonally operated ones. Traffic congestion and lack of
parking remain a growing concern in this area.
Many year-round businesses are located in the mid-island area, which is valued more for
its function than its overall appearance and character. The Mid-Island Area Plan,
adopted as an overlay district in the zoning bylaw, recommends revising the area to a
more attractive commercial district, employing new-urbanist and smart-growth principles.
Other nodes of mixed use commercial exist in the TOD. Mixed uses are encouraged in
Nantucket, and neighborhood centers are being created throughout the island within
close proximity to dense residential areas. Home-based businesses, identified in the
Nantucket Zoning Bylaw as “home occupations,” are frequently found on Nantucket and
are allowed in all zoning districts. Since the building trades comprise a significant portion
of the year-round workforce, many small-scale workshops are scattered throughout the
island as “cottage industry” type businesses.
Industrial uses have clustered around the east and west border of the airport, which is
highly compatible with the impacts.
Workforce and employment data indicates that that services and retail are the island’s
largest employers. 77% of all future job growth is projected for retail and service
industries, indicating a trend toward seasonal businesses.
For year-round residents, the most job growth for the future is in the construction
industry. Much of the construction related activity revolves around the second/vacation
home market, and as new starts in construction slow due to inevitable build-out,
residents of Nantucket will need to seek other sources for year-round employment.
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A threatening trend to the island’s year-round workforce are commuters from the
mainland, arriving by plane or ferry on a daily basis. Wages on Nantucket are higher
than in other nearby regions, making commuting attractive. For those who live here, the
cost of living, excluding housing, is about 130% higher than the U.S. average, making it
common for year-round residents to supplement their income, sometimes with secondary
employment. This makes the development of affordable housing of critical importance for
encouraging social and economic stability.
CH. 5: NATURAL AND CULTURAL RESOURCES
As an island and a designated historic district by the National Register of Historic Places,
Nantucket is abundant in natural and cultural resources. Natural resources (physical
locations) include the coastal areas along the beaches and harbors, the Great Ponds,
and five scenic landscapes, designated by DEM. Natural renewable energy resources
include wind, solar, wave, and tidal action.
Historic resources include the Island-wide designation as a Historic District by the
Commonwealth and a Historic Landmark by the Secretary of the Interior; the Nantucket
Historical Association, which owns the Whaling Museum, a research library, and other
historic sites and residences, such as Old Mill, Hadwen House; the Atheneum; the
Lifesaving Museum; the African Meeting House; three lighthouses; historical burial
grounds; and archeological sites, from Native Americans and European settlers.
Nantucket has long been a home to artists, writers, actors, musicians, and craftspeople.
Support for the arts of all kinds should continue on many levels. Survey results showed
that residents felt that the Town should have some involvement in the creation of a
Community Arts Center, with a majority stating that the town should provide incentives to
that end, such as zoning changes or tax relief. Anticipated restoration of the Dreamland
Theatre is part of the solution, but more may need to be done.
A gathering space for residents is important, such as the Tom Nevers Recreational
Facility, which accommodates community activities, such as the carnival and the County
Fair. The Town needs to make gathering easier, by retaining and creating places of
public assembly. Maintaining the downtown area as the heart and soul of the community
is imperative.
CH. 6: OPEN SPACE AND RECREATION
Nantucket is committed to protecting its native ecosystems, biodiversity, and to
maintaining the quality of the island’s water bodies. The community must strive to
develop a more pro-active approach to preserving important open-space related
historical resources and its natural landscapes. The Open Space and Recreation Plan
(OSRP), prepared and submitted to the state in 2007, has established an inventory of the
Town’s open space properties and its municipal recreational facilities.
The community should continue its efforts to acquire and manage open space for
preservation of habitats, passive and active recreation, and water supply. As less land
becomes available, the focus for open space should transition from broad acquisition to
strategic acquisitions and management.
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Protection of the surface water resources: the beaches, harbors, and great ponds are
essential. The Harbor Management Plan must be implemented, and a Coastal
Management Plan should be created and implemented in the next five years. The Town
should improve pedestrian access, public transportation, and parking near the shore,
and provide public restroom facilities where needed.
Present and future groundwater supply can be protected by including future well-field
areas in open space protection efforts through zoning, and acquisition of fee or lesser
interests. Open space and recreational needs must be coordinated to benefit each.
A bi-annual (every 2 years) meeting should be held with the Board of Selectmen and
relevant departments and agencies to identify needs, establish budgets, and orchestrate
cooperative efforts. These efforts should also include non-profit and private conservation
groups.
Historical and cultural landscapes must be identified and defined so the public
understands their value to the island, and activities such as farming, which has played
such an important historic role, should be encouraged. The town should create
incentives for agricultural activities, enhancing locally grown food sources, and long-held
traditions such as county fairs, farm stands, and markets, to continue this important part
of the island’s heritage.
Municipal agencies should focus more intently on improving availability and access to
recreational resources. Public recreational facilities and open space areas should be
designed for year-round use, and like the Tom Nevers facility, be multi-use where
appropriate. Areas that house more than one facility, such as the ice rink and skate park,
could be linked by walking paths, trails, sidewalks, bike paths, and parks.
The Parks & Recreation Department, with other town agencies, should continue to
inform the public on the availability of programs, facilities, and services. Open space and
recreational facilities should be made accessible to handicapped persons, and program
opportunities should be available to special populations when possible and practical.
Special attention should be given to make marine landings more accessible for all.
All public properties dedicated to open space should be designed and managed for their
intended public benefit. The town should review its inventory of land, and evaluate
whether the properties are appropriate for open space or other purposes.
By cultivating increased coordination and cooperation between public and private land
conservation groups, the island will maximize the successful implementation of its land
acquisition, planning, and management efforts, and will be able to coordinate trails and
contiguous habitat. Nantucket must protect its wildlife population. It should continue the
prescribed burn plan for habitat management on conservation properties, and conduct
an on-going, island-wide inventory and prioritization of wildlife habitats and species.
CH. 7: SERVICES AND FACILITIES
As a Town, it is often difficult to provide the services needed for a population that
changes so dramatically between seasons; a seasonal workforce is necessary to provide
the level of service that is expected. The challenge for the Town in future years will be to
provide the level of services necessary to meet the needs and expectations of the year-
round and seasonal residents, keeping within a relatively static budget.
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The Fiscal Year (FY) 2009 operating budget for the Town is $75,126,309, excluding the
five (5) enterprise funds, which include: Siasconset Water, Wannacomet Water, Airport,
Sewer, and Solid Waste. The largest portion of the budget, 31.9%, is dedicated to the
schools.
Nantucket’s 2007 residential tax rate was $2.49, the fourth lowest in the state. The
average assessed value for a year-round residence in FY 2009 was $1,396,522. With
the residential exemption, the tax bill for the same would be $2,818. Tax rates have been
continuously decreasing since the mid-1990’s.
TOWN ADMINISTRATION
Offices are located in the Town & County Building, 16 Broad Street, and other locations
in and on the edge of the downtown area. In the mid-island, 2 Fairgrounds Road
temporarily houses departmental offices. The Town purchased the 20-acre site from the
electric company in 2004. A site planning exercise has recommended that the building
be replaced and the site used for other municipal functions and affordable housing.
Other administrative offices are located at 40 Bathing Beach Road, 188 Madaket Road,
and 131 Sparks Avenue. The consolidation of services should be considered at one or
more locations. Most Town buildings do not have parking available for the public or staff.
TOWN SERVICE ORGANIZATIONS
Our Island Home is a Town owned and operated skilled nursing facility. Adjacent is
Landmark House, located on Town owned land, but operated through a long-term lease
to a private operator for elderly housing. Over the years there has been discussion
regarding whether Town Government should be involved in the nursing home business.
A decision about whether a nursing home facility should remain a municipal function, a
situation that is unique to Nantucket and the state, needs to be made.
The Council on Aging operates the Saltmarsh Center on Washington Street, which
provides programs and activities for senior citizens, such as nutritional and exercise
classes. The Center also serves as the local host facility for the Social Security
Administration, Women and Infant Children (WIC), and Legal Services of Cape Cod and
the Islands. The Council for Human Services is authorized to establish an annual budget
and expend funds, and to apply for, accept and expand federal and state grants for such
purposes as fuel assistance, client advocacy and referral, and housing assistance.
DEPARTMENT OF PUBLIC WORKS (DPW)
This department is charged with the maintenance and/or operation of Town
infrastructure, such as roads, drainage, vegetation, signs, and providing support to other
Town offices or facilities. The DPW also oversees wastewater and solid waste disposal.
Sewer service has dramatically expanded. The Town has adopted and implemented a
Comprehensive Wastewater Management Plan (CWMP), and two sewer districts, Town
and Siasconset, which are served by separate wastewater treatment plants. An
expansion of the CWMP is currently underway. Much of the piping needs to be replaced.
Sewer services the most populated areas of the island, but there are many other areas
that should be serviced for a variety of reasons, such as being located within the Public
Wellhead Recharge District, or in environmentally sensitive areas. Sewer districts, and
the recent passage of the sewer bill, may provide opportunities to expand service.
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The Town currently contracts with Waste Options Nantucket to provide solid waste
disposal and recycling services. Approximately 80% of all residential waste generated on
the island is either recycled or composted for re-use. The remainder is stored in lined
landfill cells on site. Rubbish collection for Town residents is not a service provided by
the Town. The Madaket Road facility is open to private rubbish collectors and the public
for waste disposal. Due to a total wood waste ban implemented by Department of
Environmental Protection on July 1, 2006, disposal of construction and demolition debris
at the landfill is prohibited, thereby requiring that it be shipped and disposed of off island.
WANNACOMET WATER COMPANY
The Nantucket Water Commission and the Siasconset Water Commission have a
Memorandum of Agreement whereby the Wannacomet Water Company provides
staffing and services for both Commissions.
Aquifer protection zones are located in the mid-island and Siasconset. Three well fields,
one in Siasconset, one in mid-island, and the other off of Polpis Road, pump water from
the aquifer. Storage tanks are located off of Cliff Road and New Lane in Siasconset, with
a new storage tank and pump station in the development stages on the Wannacomet
Water Company site off of Polpis Road. The Company actively expands and updates
their distribution system to increase the service area and to provide better fire protection.
There is a demand for extension of water service in areas where water quality is poor,
such as Madaket, Cisco, and the Bartlett/Somerset areas.
NANTUCKET MEMORIAL AIRPORT
The expansion of the airport terminal is scheduled for completion in May of 2009, in
order to meet Transportation Safety Administration (TSA) requirements, and to better
accommodate those entities that operate from or use the facility. The airport is operated
in accordance with a plan entitled “Airport Layout Plan,” which illustrates where all future
projects are proposed to be located. In concert with that plan, the Airport Commission
approved “Phase II, Master Plan Update, Nantucket Memorial Airport, 1999” in June of
1999, which is in the process of being updated.
In addition, the Airport Commission operates a Major Commercial Development (MCD)
on airport property, accessed from Bunker Road. It contains lease areas that are
available for long-term lease by industrial businesses. This service is important to the
community, as the property is outside of the Public Wellhead Recharge District, and the
large lease areas can accommodate industrial businesses that are not generally
compatible with most other areas of the island.
PUBLIC SAFETY
The Nantucket Police Department and the Nantucket Fire Department are the primary
providers of public safety on the island. The Police Department is located downtown, and
the Fire Department is located in the mid-island. Approximately five (5) acres of the
Town property at 2 Fairgrounds Road have been allocated for a shared facility. However,
plans and funding for such a facility have not been well received by the voters. A warrant
article requesting $27.5 million dollars to construct a shared facility was approved at the
2008 Annual Town Meeting, only to be defeated at the ballot.
The Police Department is comprised of both year-round and seasonal officers. Due to
the geographic isolation of Nantucket and the lack of mutual aid available from other
communities, the Police Department consists of several specialized sectors including:
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School Resource Officer, Elderly Service Officer, Animal Control Officer, Field Training
Officers, Special Response Team, Canine Teams, Criminal Investigations Division, and
Patrol Division.
The Fire Department includes Emergency Medical Services (EMS) and is responsible for
fire prevention, hazardous material removal, and code enforcement, such as proper
permitting for fuel storage, explosives, tank trucks, and fire alarms. The Department’s
goals include reducing the risk to the community from man-made and natural disasters,
and providing response times within nationally accepted standards. Many of the Fire
Department’s officers have specialized training.
Emergency Preparedness is coordinated by the Police Chief in concert with other Town
departments and the Cape and Islands Chapter of the American Red Cross. A
Comprehensive Disaster Mitigation plan is being developed and an Emergency
Operations Center is located at 2 Fairgrounds Road. The primary emergency shelter for
the island is the Nantucket High School, with secondary shelters available at 2
Fairgrounds Road, and the DPW facility off of Madaket Road. At these locations, food,
bedding, other shelter supplies, and emergency utility generation capabilities are
available.
SCHOOLS
One public school system serves the island, consisting of the Nantucket Elementary
School, Cyrus Peirce Middle School, and Nantucket High School. All of these facilities
are located on a single campus off of Surfside Road. There are two private schools:
Nantucket New School and Nantucket Lighthouse School. Total enrollment for the school
system, for the 2007-2008 school year, was 1,295 students, with approximately $10,190
being spent per student.
The middle and high schools not only serve the student population, but serve as a
community facility for sports, meeting rooms, educational courses, theatre, and voting on
election days.
The Nantucket Community School, operated by Nantucket Public Schools, was founded
to provide year-round educational opportunities for adults and children. Programs focus
on work-place skills, personal interests, and health and wellness. Partnerships are often
formed with other entities, such as the Cape Cod Community College, to provide
educational options that are generally not easily accessed from Nantucket.
MARINE AND COASTAL RESOURCES
With offices located at the Town Pier on Washington Street, Marine and Coastal
Resources is responsible for servicing the boating public, including: search and rescue,
oil containment and clean-up, assisting disabled vessels, mooring placement, and
maintenance of Town Pier slips. In addition, the Washington Street site offers restrooms,
showers, pump-out, ice, fresh water, and other necessities for boaters.
This department also includes the Town and Marine Biologists, as well as the Beach
Manager. The Town Biologist conducts shellfish propagation, augmenting those that
grow naturally. Since shellfishing is a valuable component of the winter economy and
Nantucket tradition, it is important that the shellfish population be sustained.
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The Beach Management Program supervises all Town owned and/or operated beaches.
This includes the provision of lifeguards, endangered species management, dune
profiling, and maintaining public access.
The Nantucket and Madaket Harbor Plan update was completed in 2007 and approved
by the Office of Coastal Zone Management and the Department of Environmental
Protection. This plan is under recommendation to be updated every five years.
NANTUCKET COTTAGE HOSPITAL
Although not operated by the Town of Nantucket, the Nantucket Cottage Hospital is an
important facility where many services are provided to both residents and visitors. It is
now affiliated with Massachusetts General Hospital and is a full-service facility with full-
time physicians on staff, as well as many others who visit the island regularly to
accommodate the need for specialists. Both in-patient and out-patient services are
provided, as well as in-home care through the Visiting Nurses program.
ENERGY/UTILITIES
Electrical service is transported by two undersea cables, which extend twenty-six miles
from Harwich to Nantucket. The first undersea cable was installed in 1996 and the
second in 2005. Prior to the installation of the first cable, electrical generation took place
on the Candle Street site, which is a prominent location in the downtown and is directly
adjacent to the harbor. The installation of the cable decreased the environmental impacts
of on-site generation, and provided for increased reliability in service.
Bulk fuel (heating oil, gasoline, and diesel) storage tanks are located in the downtown,
directly adjacent to the harbor and the Candle Street site owned by National Grid.
Storage has historically been located in this area, due to the close proximity to the harbor
for unloading. Over time, the area has transformed into a mix of hotel, rental cottages,
and light commercial uses, which are not compatible with the industrial nature of bulk
fuel storage. This area is also heavily congested, particularly in the summer months,
making access difficult and potentially dangerous due to the hazardous materials being
transported.
An out of town storage facility has been explored on Town owned property. The Board of
Selectmen voted to support moving the tank farm out of town. Relocating both storage
and off-loading to an out of town location would be a positive improvement for traffic and
safety. Vehicles carrying these hazardous materials would no longer be traveling through
the most populated and traffic congested areas of the island to refill. Propane bulk fuel is
located on several lease areas in the Bunker Road industrial area.
The NP&EDC, and the Energy Study Committee, which was established at the 2003
ATM, are exploring alternative energy sources. These include land based wind turbines
on large publicly owned parcels, and an off-shore marine renewable energy center. The
NP&EDC is pursuing leased areas in federal waters to conduct studies. The NP&EDC
and Edgartown have collaborated on a tidal energy test project between Nantucket and
Martha’s Vineyard in the Muskeget Channel. Implementation of a tidal energy
demonstration project is scheduled over the next two years.
There is growing interest in developing alternative energy solutions that do not require
non-renewable resources. Nantucket is surrounded by powerful and plentiful natural
forces, including wind, tidal, and wave energy. Development of alternative energy that
may provide a direct economic benefit to Nantucket should be explored.
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Telephone, cable, and internet services are available on-island through two service
providers, Comcast and Verizon. Not all areas of the island are serviced by both
providers, or have the same telecommunications services available. Not only are these
services an amenity that all residents would ideally have access to, but a goal of the
Circulation element is to expand these services so that they may be utilized as a means
to promote less work-related travel.
CEMETERIES
There are thirteen cemeteries on island, ten of which are Town owned. The Department
of Public Works is responsible for general maintenance. A Cemetery Department, with a
board of commissioners, should be established to establish a long-range plan for Town
Cemeteries, investigate establishing a crematory, and to set aside land for a new
municipal cemetery.
CHAPTER 8: CIRCULATION AND TRANSPORTATION
The transportation system on Nantucket can be segmented into six components:
roadways, public transportation, bike/pedestrian paths, parking, airport, and ferry
services. The vision for transportation is to provide a system that will move people and
goods to, from, and around the island in a way that is safe, convenient, economical, and
contextually sensitive.
Nantucket's transportation challenge for the next thirty years is to try to minimize the
number of cars coming to the island and their use once they are here. Respondents to
both a non-binding ballot question and a questionnaire support implementation of a
vehicle limitation program. Few however can agree on the details. As a result of high
traffic volumes and number of crashes, much of the investment in the near future will
focus on congestion reduction and safety improvements primarily in the mid-island area.
PUBLIC TRANSPORTATION
The Nantucket Regional Transit Authority (NRTA), established to alleviate seasonal
downtown core traffic congestion, has become a successful mode of transportation.
Service has been expanded, and ridership has grown. In future, funding will be
concentrated on maintaining the successful marketing and education efforts, and
expanding the system to any underserved areas.
BIKE/PEDESTRIAN PATHS
Currently there are approximately 29 miles of paths on Nantucket, which are well used
among both year-round and seasonal populations. All bike path recommendations
identified in the 1990 Goals and Objectives document are either completed or at some
stage of implementation.
It is essential that funds be directed to the development of the “In-town” bike route,
accommodating bicycle and pedestrian traffic between the downtown area and the
outlying system of paths. Currently this route is a critical missing link in the network of
bike/pedestrian paths. A path along Hummock Pond Road is currently being considered,
and extensions of facilities to village areas in Tom Nevers, Quidnet, Wauwinet/Pocomo,
and Dionis, are future projects.
PARKING
Parking issues in the downtown area have been the focus of current and prior planning
studies. It is extremely limited, and the only facilities for public off-street parking in these
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areas are the Town lots on Washington and Silver Streets. As parking availability
continues to become more limited, additional parking opportunities will need to be
created within walking distance to downtown, and as part of an expanded NRTA park-
and-ride system. Parking strategies also have to be developed for the mid-island,
neighborhood and higher density residential areas away from the downtown.
NANTUCKET MEMORIAL AIRPORT
The Nantucket Memorial Airport is currently owned and operated by the Town of
Nantucket under the jurisdiction of an appointed Airport Commission, with a master plan
in place that was approved in June of 1999, and is in the process of being updated. It is
one of five (5) airports in Massachusetts with scheduled passenger service, and it is the
second busiest airport in the state. Not only is the Airport an important transportation link
for visitors, residents and commuters; it is a vital component of moving freight on a day-
to-day basis. As use of the Airport continues to increase, corresponding improvements
for access to public transportation must be provided.
FERRY SERVICES
Nantucket is served by three ferry operations that provide transport between Nantucket
and Cape Cod: the Steamship Authority, Hy-Line Cruises, and Freedom Cruises. The
Steamship Authority is a public agency providing passenger, vehicle, and freight
transport between Nantucket and Hyannis, and it licenses the other two private carriers.
The year-round passenger boat options include high-speed (one-hour) service on the
Steamship and the Hy-Line from Hyannis. From May to October, Freedom operates out
of Harwich Port.
Comprehensive strategies for improving the traffic circulation and access to both ferry
terminals will be critical to addressing the seasonal congestion and safety issues. These
objectives will be achieved through improved coordination and communication with the
Steamship Authority, as a major reconstruction of the main facility is under consideration.
The area adjacent to the Hyline/Freedom Cruise dock has been identified as part of an
area of redevelopment, and improving access should be one of the project goals.
CH. 9: IMPLEMENTATION
This chapter reiterates the Goals and Policies stated in Chapter One, and assigns the
stated policy tasks to relevant boards and departments. It also includes action items
currently in place to achieve the Goals and Policies. The implementation element of the
plan is the most dynamic feature; it will continually be updated on a set schedule to
reflect the ongoing state of the island and its government.
14
GLOSSARY
40B Developments: Intended to provide decent, safe, and low to moderate cost housing
throughout the Commonwealth. 40B housing developments must contain a minimum of
20% rental or 25% owner occupied units that are affordable to those households earning
80% or less of median income. Although local regulations are not applicable to 40B
developments, the Zoning Board of Appeals is the local permit granting authority.
Appeals of the Zoning Board of Appeals may be submitted to the Housing Appeals
Committee in the State Department of Community Affairs. (MGL Ch. 40B)
43D Streamline permitting: The establishment of priority development sites, approved
by the Interagency Permitting Board, located in close proximity to existing development.
A single municipal contact shall be appointed to guide the application review process
within a 180 day time frame. (MGL Ch. 43D)
Accessory apartments: a dwelling unit located in an owner-occupied detached single-
family dwelling unit and subject to restrictions including unit size, interior and exterior
design, ownership, and year-round occupancy. (Nantucket Zoning Bylaw, Ch. 139-2)
Accessory uses: Separate structures, buildings or uses, which are subordinate and
customarily incidental to a principal structure, building or use located on the same lot.
(Nantucket Zoning Bylaw, Ch.139-2)
Affordable housing: When used in the context of housing on Nantucket, a housing unit
whose sale or resale price is regulated to be occupied by households with annual
incomes less than 150% of the median annual household income for Nantucket County
as determined by the most current calculations produced by the U.S. Department of
Housing and Urban Development.
Agriculture : The use of land for agricultural purposes, including farming, dairying,
pasturage, apiculture, horticulture, floriculture, viticulture, and animal and poultry
husbandry, and the necessary uses for packing, treating and storing the produce. (MGL
Ch. 40A, Sec. 3)
AHD: Special Academy Hill District.
ALC: Assisted/Independent Living District.
Alternative modes of transportation: Methods of transporting people that do not involve
the use of private automobiles. Typical examples include buses, shuttle vans, taxis,
bicycles, and walking.
Approval Not Required ("ANR") endorsement: An endorsement required from a
Planning Board for the division of land that is not subject to subdivision approval, as set
forth in MGL, Ch. 41, Sec. 81K through GG, and as regulated through the Rules and
Regulations Governing the Subdivision of Land, Nantucket Island, Massachusetts, as it
may be amended from time to time.
Approval Required ("AR") Subdivision: An approval required from a Planning Board for
the subdivision of land, as set forth in MGL, Ch. 41, Sec. 81K through GG.
15
Aquifer : A geological formation that stores and transmits significant quantities of
recoverable water.
Aquaculture: The raising and harvesting of fresh and saltwater plants and animals.
Assisted-Independent living: A housing facility for the elderly and those with special
needs that provides assistance with daily activities such as meals, dressing, grooming,
etc., as defined by MGL c. 19D.
Auto(mobile)-dependent (Pertaining to a land use): A use of land that because of its
location causes reliance on the use of a private automobile for most essential and
customary daily transportation needs.
Betterments: A special assessment apportioned to property owners who benefit from
public improvements within a specified geographic area. The assessment is based on
the value of the improvements in accordance with an equitable proportionate share of
the benefit afforded to the property owners. (MGL, Ch. 80, Sec. 13B)
Build-out: Development of land to its full potential or theoretical capacity as permitted
under current or proposed planning or zoning designations. (A Glossary of Zoning,
Development, and Planning Terms; American Planning Association, PAS Report #
491/492)
Capital improvements : Physical assets constructed or purchased to provide, improve,
or replace a public facility and which is large in scale and high in cost. The cost of a
capital improvement is generally nonrecurring and may require multiyear financing. (A
Planners Dictionary, PAS Report #521/522)
CDT: Commercial Downtown District.
CI: Commercial Industrial District.
CMI: Commercial Mid-Island District.
CN: Commercial Neighborhood District.
CTEC: Commercial Trade, Entrepreneurship and Craft District.
Cluster, or clustering: A development design technique that concentrates buildings on a
specific area of the site to allow remaining land to be reserved for recreation, common
open space, or the preservation of historically or environmentally sensitive features. (A
Glossary of Zoning, Development, and Planning Terms; American Planning Association,
PAS Report # 491/492)
Commercial : As in a trade, occupation, or business, including a transient residential
facility, but excluding governmental, religious or private residential uses. (Nantucket
Zoning Bylaw, Ch. 139-2)
Comprehensive Wastewater Management Plan ("CWMP"): A community-wide plan
that contains strategies for the disposal and treatment of sewage effluent.
16
Conservation restriction: A right that runs with the land, held by a governmental body or
by a charitable corporation or trust, either in perpetuity or for a specified number of years,
whether or not stated in the form of a restriction, easement, covenant or condition, in any
deed, will, or other instrument executed by or on behalf of the owner of the land or in any
order of taking, appropriate to retaining land or water areas predominantly in their
natural, scenic, or open condition or in agricultural, farming, or forest use, to permit
public recreational use, or to forbid or limit any or all activities. (MGL, Ch. 184, Sec. 31)
Contractors shop : An establishment used for the indoor repair, maintenance, or storage
of a contractor’s vehicles, equipment, or materials, and may include the contractor’s
business office but which does not use any exterior storage area. (Nantucket Zoning
Bylaw, Ch. 139-2)
Convenience store : A retail store offering for sale groceries and household items
intended for the convenience of the neighborhood with a floor area of less than 2,500
square feet; does not include automotive service stations or vehicle repair shops.
(Nantucket Zoning Bylaw, Ch. 139-2)
Co-op (cooperative): Multiple-family dwellings owned and maintained by the residents,
with common ownership of the entire real property. (Derived substantially from A
Glossary of Zoning, Development, and Planning Terms; American Planning Association,
PAS Report # 491/492)
Country or Country Overlay District (COD): In the specific context of this Plan, a
zoning overlay district encompassing those areas not included in the Town Overlay
District. Country is characterized by broad expanses of moorlands and associated
habitat, agricultural lands, and existing developed areas of low population density.
(Nantucket Zoning Bylaw, Ch. 139-12)
Development rights: The right to develop land by a landowner who maintains fee simple
ownership over the land, or by a party other than the owner who has obtained the rights
to develop. (A Glossary of Zoning, Development, and Planning Terms; American
Planning Association, PAS Report # 491/492)
Dormitory, employer: A dwelling in which sleeping accommodations for six or more
persons are provided by one or more employers, with occupancy limited solely to their
employees. (Nantucket Zoning Bylaw, Ch. 139-2)
Dwelling unit : A room or enclosed floor space used, or to be used, as a habitable unit
for one family or household, with facilities for sleeping, cooking and sanitation.
(Nantucket Zoning Bylaw, Ch. 139-2)
FBED: Formula Business Exclusion District.
FHD: Flood Hazard District.
Formula business : A type of retail sales establishment, restaurant, tavern, bar, or take-
out food establishment which is under common ownership or control or is a franchise,
and is one of 14 or more other businesses or establishments worldwide maintaining
three or more of the following features:
(1) Standardized menu or standardized array of merchandise with 50% or more
17
of in-stock merchandise from a single distributor bearing uniform markings.
(2) Trademark or service mark, defined as a word, phrase, symbol or design, or
a combination or words, phrases, symbols of designs that identifies and
distinguishes the source of the goods from one party from those of others, on
products or as part of store design.
(3) Standardized color scheme used throughout the interior or exterior of the
establishment.
(4) Standardized uniform including but not limited to aprons, pants, shirts,
smocks or dresses, hat, and pins (other than name tags). (Nantucket Zoning
Bylaw, Ch. 139-2)
Geographic Information System ("GIS"): A computer system designed for assembling,
storing, manipulating, and displaying geographically referenced information.
Greenbelt: A series of connected open spaces. (A Planners Dictionary, PAS Report
#521/522)
HOD: Harbor Overlay District.
Home occupation : An occupation, trade, profession, or business activity conducted as
an accessory use wholly or partly within a dwelling unit or in one or more accessory
structure (s). (Nantucket Zoning Bylaw, Ch. 139-2)
Household : One or more persons occupying the premises and living together as a
single housekeeping unit. (Nantucket Zoning Bylaw, Ch. 139-2)
Inclusionary unit : Any rental dwelling unit required pursuant to §139-11J whose rent,
excluding utilities, does not exceed 30% of the gross income of an employee occupant.
(Nantucket Zoning Bylaw, Ch. 139-2)
Infill development: The development of vacant or partially developed parcels which are
surrounded by, or in close proximity to, areas that are substantially or fully developed. (A
Planners Dictionary, PAS Report #521/522)
Infrastructure: Facilities and services needed to sustain residential, commercial,
industrial, and all other land-use activities, including water, sewer lines, and other
utilities, streets and roads, communications, and public facilities such as fire stations,
parks, schools, etc. (A Glossary of Zoning, Development, and Planning Terms; American
Planning Association, PAS Report # 491/492)
LC: Limited Commercial District.
LUG-1: Limited Use General 1 District.
LUG-2: Limited Use General 2 District.
LUG-3: Limited Use General 3 District.
18
MFOD: Multi-Family Overlay District.
MGL: Massachusetts General Law.
MMD: Moorlands Management District.
Nantucket Housing Needs Covenant (NHNC): An affordable-housing covenant, either
in perpetuity or for a specified number of years, limiting the use of all or part of the
property to occupancy by persons or families with annual incomes less than 150% of the
median annual household income for Nantucket County as determined by the most
current calculations produced by the U.S. Department of Housing and Urban
Development; or restricting the resale price of all or part of the property in order to assure
its affordability; or, in any way limiting or restricting the use or enjoyment of all or any
portion of the land for the purpose of encouraging or assuring creation or retention of
rental and other housing for occupancy by persons or families committed to year-round
Nantucket residency within the above-noted income limits. (Nantucket Zoning Bylaw, Ch.
139-7, G, H)
NEHOD: Neighborhood Employee Housing Overlay District.
Neighborhood Area Plan: A plan for a particular neighborhood or district that provides
neighborhood-specific planning goals and objectives, strategies, and land-use plans and
proposed bylaw changes, all in the context of this Plan.
New urbanist: An approach to land-use planning and design that promotes the building
of compact neighborhoods with a mix of uses, housing types, architectural variety, and
public spaces, with interconnected streets and alleys. (A Planners Dictionary, PAS
Report #521/522)
Node: An identifiable grouping uses subsidiary and dependent upon a larger grouping of
related uses. (A Planners Dictionary, PAS Report #521/522)
OIH: Special Our Island Home District.
Paratransit: A form of public transportation characterized by the flexible routing and
scheduling of small vehicles to provide shared occupancy, doorstep, or curbside
personalized transportation service. (A Glossary of Zoning, Development, and Planning
Terms; American Planning Association, PAS Report # 491/492)
Pocket park: A very small park or open space, usually found in densely developed
areas.
Preservation restriction: A right that runs with the land, held by a governmental body or
by a charitable corporation or trust, whether or not stated in the form of a restriction,
easement, covenant or condition, in any deed, will or other instrument executed by or on
behalf of the owner of the land or in any order of taking, appropriate to preservation of a
structure or site historically significant for its architecture, archaeology, or associations,
to forbid or limit any or all activities as set forth in MGL, Ch. 184, Sec. 31.
Public Wellhead Recharge District (PWR): A zoning overlay district, the area of which
is established on the basis of hydrologic analyses, that identifies the zone of influence for
a public water-supply well. The district provides limitations on land uses and a regulatory
review process to protect the underlying drinking-water supply.
19
R-1: Residential-1 District.
R-5: Residential-5 District.
R-10: Residential-10 District.
R-20: Residential-20 District.
R-40: Residential-40 District.
RC: Residential Commercial District.
RC-2: Residential Commercial 2 District.
ROH: Residential Old Historic District.
Seamless linkage: A program that "links" various modes of transportation (generally
excluding the private automobile) through integrated scheduling, joint ticketing, and other
means to smooth the transition between modes, extending from point-of-departure to
point-of-arrival.
Secondary dwelling: A second, detached or attached dwelling unit on a lot, subordinate
in size to the primary dwelling or residence The principal purpose of secondary dwellings
is to create housing opportunities through the provision of affordable rental housing for
year-round residents, including senior citizens, while affording the owner of the primary
residence with the opportunity to generate supplemental income. (Nantucket Zoning
Bylaw, Ch. 139-7)
Special permit: A permit process to allow a property use that would not be appropriate
generally or without restriction throughout a zoning district, but which, if controlled as to
number, area, location, or relation to the neighborhood, would promote the public health,
safety, morals, order, comfort, convenience, appearance, prosperity, or general welfare.
(A Glossary of Zoning, Development, and Planning Terms; American Planning
Association, PAS Report # 491/492)
Smart growth: Planning, regulatory, and development practices founded upon and
promoting the following principals: using land resources more efficiently, supporting the
location of development in compact neighborhoods within walking distance of each
other, providing a variety of housing choices, supporting walking, cycling, and transit as
attractive alternatives to driving, connecting infrastructure and development to minimize
future costs, and to improve the development review process so that developers are
encouraged to apply the principals stated above. (A Planners Dictionary, PAS Report
#521/522)
SOH: ’Sconset Old Historic District.
SR-1: ’Sconset Residential-1 District.
SR-10: ’Sconset Residential-10 District.
SR-20: ’Sconset Residential-20 District.
20
Town or Town Overlay District (TOD): In the specific context of this Plan, a zoning
overlay district designated for growth that contains historic developed areas, and those
areas deemed suitable for expansion for future growth.
Traffic calming: The concept of reducing the adverse impacts of motor vehicles through,
among other measures, reducing motorist speed, reducing traffic volumes, and providing
more space and safety for pedestrians and cyclists. (Derived substantially from A
Glossary of Zoning, Development, and Planning Terms; American Planning Association,
PAS Report # 491/492)
Transfer of development r ights ("TDR"): A program that can relocate potential
development from areas where proposed land use or environmental impacts are
considered undesirable (the “donor” site) to another (“receiver”) site chosen on the basis
of its ability to accommodate additional units of development beyond that for which it was
zoned, with minimal environmental, social, and aesthetic impacts. (A Glossary of Zoning,
Development, and Planning Terms; American Planning Association, PAS Report #
491/492)
Village centers: Small commercial centers within walking distance of the homes of
residents in established neighborhoods that function primarily to serve the convenience
needs of those neighborhoods.
VN: Village Neighborhood District.
VR: Village Residential District.
VTEC: Village Trade, Entrepreneurship and Craft District.
Zoning Overlay District: A district that prescribes special regulations to be applied to a
site in combination with the underlying or base district. (A Glossary of Zoning,
Development, and Planning Terms; American Planning Association, PAS Report #
491/492)
21
1 Goals & Objectives for Balanced Growth: A Broad Policy for the Island’s Future, prepared by the
Nantucket Planning & Economic Development Commission, adopted by a vote of Town Meeting,
November 13, 1990.
2 Charting the Future: The Nantucket Comprehensive Community Plan, “ratified” by the Nantucket
Planning & Economic Development Commission, January 8 (sic-see vote taken on January 2,
2001), 2001
INTRODUCTION
WHAT IS A 41-81D MASTER PLAN AND WHY CREATE AND ADOPT IT?
The Plan is:
“… a statement, through text, maps, illustrations or other forms of
communication that is designed to provide a basis for decision
making regarding the long-term physical development of the
municipality;” (M.G.L. Ch. 41-81D)
Perhaps the most frequently asked question posed to staff and Planning Board members
over the last three years is why create a 41-81D Master Plan (hereinafter the “Plan”)?
The answers are simple, and there are multiple considerations. The Plan:
▪Is a basic requirement of M.G.L Ch. 41-81D,
▪Updates the soon to be expiring town-adopted Goals and Objectives of 1990,1
▪Advances and clarifies salvageable aspects of the Comprehensive Community
Plan (CCP) of 2001,2
▪Provides a legally defensible basis and consistency standard for zoning
changes, and
▪Will set the stage to bring the community into compliance with anticipated
changes to the state’s enabling laws, allowing greater local control.
Furthermore, it removes excuses for inaction, or deferral of critical community decision-
making, by providing a basic guideline for the physical development of the community.
Supported by the legislative authority of the Town, the Town Meeting, it should become
an important touchstone document that current and future leaders will at least consult, if
not use, to guide their actions.
Like the ebb and flow of Nantucket’s tidal currents, the Plan is intended to be an active,
fluid, and evolving document that is a resource for those who seek to understand the
past and present, and to imagine the future. By itself, it is not intended to be a rigid
document, but it will result in specific and relevant proposals advancing to implementing
agencies for their consideration. These implementation agencies may be local boards
and commissions, or Town Meeting. The Plan’s implementation measures are meant to
be objectively assessed, so that decisions can be made about the degree of success or
failure of the various aspects of the Plan.
The curse of some master plans is that they are passed and then left on the shelf to
gather dust and eventually be forgotten. Our hope is that this document will be actively
used by staff, appointed and elected officials, and private and other non-profit groups. It
is intended, like the Goals and Objectives document of 1990, to be relevant for at least a
ten-year, but ideally a twenty-year period, so as not to require frequent comprehensive
revisions. To do so risks “planning fatigue,” a never-ending and ultimately inaccessible
22
3 Appendix A, relevant Town Meeting actions 2006–2008
process that is often unrepresentative, and a distraction from accomplishing the core
mission of implementation.
Certain elements of the Plan will be updated annually, such as demographic information,
implementation measures, and capital programming for services. On a four-year
schedule, transportation (circulation) will be updated. On a five-year schedule, housing
and open space will be revisited as required by other laws or practice. This updating will
create a centralized reference for evolving factual data. This approach will keep the Plan
current, reduce redundancy and minimize the extent of future revisions.
Because the Plan focuses on the physical development of the community, there is a
deliberate emphasis on those aspects that have direct and indirect impact on the way the
community looks. The nine elements of the statute make direct references to physical
aspects, for example, density, infrastructure, and areas that are not developed. The
elements are as follows, with ongoing staff comments noted below:
1.Goals and Policy Statement – Developed through an interactive public process,
2005-2009.
2.Land Use – Comprehensive overhaul proposed and in-process.
3.Housing – Covenant and home ownership program in place; rental and low
income programs need development and implementation. Current priority.
4.Economic Development – Tied to zoning and land use. District definitions and
development process underway.
5.Natural and Cultural Resources – Needs definition and discussion.
6.Open Space – Devised on a parallel track with the EOEA required plan.
7.Services and Facilities – Developed through capital planning, municipal goals
and departmental plans and practices.
8.Circulation – Developed as the Regional Transportation Plan (RTP).
9.Implementation – Adopted through Town Meeting warrant articles, bylaws
adopted by boards or commissions and other municipal, non-profit, or private
actions.
Many recommendations to revise zoning for reasons discussed in the body of the Plan
are consistent with the Planning Board’s efforts over the past three years (see Appendix
A for complete list), and conform with actions taken at the last four consecutive Town
Meetings.3
Within this physical environment, people conduct their lives: year-round residents,
summer season residents and workers, and tourists whose time on Nantucket might be
very brief. The decisions made about physical aspects have the potential to impact those
lives, as any change might, in a positive, neutral, or negative way. Decisions must be
carefully calibrated so that there are principles of fairness, transparency, and shared
responsibility among the various segments of Nantucket’s society. Responses to
problems should be thoughtfully evaluated so that burdens are not placed
indiscriminately on certain groups of individuals, or to the detriment of others; sacrifices
should be shared and fully explained. Our staff planners have certain responsibilities to
the public and are guided by the following:
▪To serve the public interest
▪To be conscious of the rights of others
23
4 AICP Code of Ethics
5 Bobrowski and see discussion at Rando v. Town of North Attleborough
6 MA APA
7http://www.mass.gov/?pageID=gov3subtopic&L=5&L0=Home&L1=Key+Priorities&L2=Job+Creat
ion+%26+Economic+Growth&L3=Clean+Energy+%26+Smart+Growth-
Smart+Energy&L4=Commonwealth+Capital&sid=Agov3
8 Chapter 561 of the Acts of 1973
9 Ibid
▪To be aware of the long-range consequences of present actions
▪To pay special attention to the interrelatedness of decisions
▪To include those who lack formal organization or influence so that they may
have meaningful impact on development or plans which may affect them. 4
These guidelines have motivated and inspired the Board to seek broad input on our
activities over a longer period of time than initially contemplated, allowing for ample and
varied public input as further described in the Methodology section of the Goals and
Policy Statement that follows.
STATE HISTORY-AUTHORITY
Massachusetts State law (MGL Chapter 41, Section 81D) requires that a Planning Board
produce a master plan. The law, part of early zoning enabling statutes adopted by the
State in the mid-1930s, and relatively unchanged since 1947, does not require that a
community’s zoning laws be in compliance with this plan.5 Until recently, there have
been no direct consequences or benefits for having or not having said plan. Perhaps, as
a result of the structural disconnect and a lack of penalties or incentives, many
communities have not complied with the law, although they have undertaken planning
activities and produced plans. Recently there has been significant statewide interest in
adopting new state planning and zoning enabling statutes, as the current statutes have
been described as obsolete.6 Proposed changes in legislation would require consistency
between zoning and planning, tasking regional planning agencies with review of local
plans. In addition, the state implemented a “smart growth” program in 2004-2005, issued
a “toolbox” of land use practices in 2007, and created a “scorecard” that ranks
communities on a variety of criteria with the final score taken into account in competitive
grant rounds. It is notable that between 2005 and 2009, Nantucket ranked among the top
ten communities in the Commonwealth on the scorecard.7
BACKGROUND-NANTUCKET
Nantucket’s Planning Board, created in 1955, operated without benefit of any plan until
1970. Planning documents intending to serve as master plans created between 1970
and 2001 were not consistent with the statute, probably for reasons discussed in the
previous section. Goals and Objectives documents in 1983 and 1990 were submitted as
warrant articles by the Nantucket Planning & Economic Development Commission
(NP&EDC), and received strong support from Town Meeting.
The NP&EDC was created as Nantucket’s Regional Planning Agency (RPA) in 1973 “for
the preparation of comprehensive plans for the physical, social, and economic
development of said county and town.”8 However, the authority delegated in the
enabling legislation is only “to make recommendations for action to implement said plans
to the responsible county and town agencies.”9 The NP&EDC was not intended to
supersede the authority of the Planning Board, or to be given exclusivity for the planning
24
10 NP&EDC, minutes of October 3, 2000
11 NP&EDC, minutes of January 8, 2001
12 CCP, pp. 8-9
13 Warrant Article 37, 2002 ATM
14 Warrant Article 4, 2001 STM
15 NP&EDC, minutes of July 8, 2004 and Planning Board, minutes of June 28, 2004
16 U.S. Census Bureau, Profile of General Demographic Characteristics: 2000
for Nantucket’s future. It is important and efficient for both the NP&EDC and the Planning
Board to work together and to promote common goals.
In discussions in 2000, the NP&EDC rejected efforts to make the CCP compliant with
statutory regulations, instead committing to develop a separate plan, led by the Planning
Board.10 The CCP was not adopted by the Town in a formal warrant article, although a
nonbinding “ratification” discussion occurred amidst a Special Town Meeting on January
8, 2001.11 These events are of questionable procedural and legal value, and as stated
repeatedly in the document: “The objectives and recommendations listed below are not
intended as mandates to the Town of Nantucket, or to any other person, agency,
organization, or public or quasi-public entity.”12
Although several objectives of the CCP were adopted by Town Meeting, the Town and
Country overlay concepts,13 and covenant housing programs being most prominent, the
voters ultimately rejected key underpinnings. The most significant was the
discontinuation of the building cap program, which sought to limit the number of building
permits issued per year. This measure failed to achieve the necessary two-third (2/3)
majority at the 2001 Special Town Meeting and expired on December 31, 2001.14 Its
defeat rendered much of the CCP obsolete because many of its objectives were
dependent upon the continuation of the building cap. By 2004, the NP&EDC and the
Planning Board voted to make the development of the Master Plan their top priority,
thereby directing staff to this effort.15 The Planning Board began its current focus on the
Master Plan in July, 2005.
NANTUCKET GROWTH – DISCUSSION
The demographic profile of Nantucket has changed in both profound and subtle ways
over the past twenty years, as explained in detail below. Overall, the population is larger,
wealthier, more educated, and more diverse than in the immediate past.
The dominant age group is currently those between ages 24 and 36, with a median age
equivalent to that of the State, which is 36.5 years.16
25
Median Age by County
30
32
34
36
38
40
42
44
46
48
SuffolkHampshireNantucketHampdenWorcesterBristolMiddlesexPlymouthEssexNorfolkFranklinBerkshireDukesBarnstableCountyAge in YearsUS Average 36.5
Figure 1. Median Age by County (US Census 2006)
In contrast to the State, Nantucket has a slightly higher percentage of males than
females, a significant percentage in the 18-24 age groups in the construction industry, as
shown below.
26
Figure 2. Distribution of Residents' Ages (www.city-data.com)
2006 US Census Population Estimate
Ages 18 through 24
0
5
10
15
20
25
BarnstableNantucketDukesNorfolkPlymouthBristolEssexWorcesterFranklinMiddlesexBerkshireHampdenSuffolkHampshireCountyPercentage ofPopulationMA Average 9.94%
US Average 9.78%
Figure 3. Population Estimate (US Census 2006)
Perhaps because this age group corresponds with prime child bearing years, Nantucket
also has the highest number of infants and children less than 5 years old compared to
other counties in the State, as shown in Figure 4.
27
2006 US Census Population Estimate
Less than 5 Years in Age
0
1
2
3
4
5
6
7
8
HampshireBarnstableFranklinBerkshireDukesMiddlesexNorfolkBristolSuffolkHampdenPlymouthWorcesterEssexNantucketCountyPercentage of PopulationMA Average 5.84%
US Average 6.87%
Figure 4. Population Estimate - Less Than 5 Years Old (US Census 2006)
Comparatively, Nantucket has among the lowest percentage of children between 5 and
17 and elderly residents (over 65) as other Massachusetts’ counties, as shown in
Figures 4 and 5.
2006 US Census Population Estimate
Ages 5 through 17
10
11
12
13
14
15
16
17
18
19
HampshireNantucketBarnstableSuffolkDukesFranklinBerkshireMiddlesexNorfolkBristolEssexWorcesterHampdenPlymouthCountyPercentage of PopulationUS Average 17.8%
MA Average 16.5%
Figure 5. Population Estimate - 5 to 17 Years Old (US Census 2006)
28
17 http://quickfacts.census.gov note: Over 4000 is based on the fact that 4040 dwelling units as of
2000 were used year-round. This number will not be updated until 2010 census.
18http://quickfacts.census.gov
2006 US Census Population Estimate
Ages 65 and over
5
10
15
20
25
NantucketSuffolkWorcesterHampshirePlymouthMiddlesexBristolEssexNorfolkHampdenFranklinDukesBerkshireBarnstableCountyPercentage ofPopulationMA Average 13.32%
US Average 12.56%
Figure 6. Population Estimate - 65 and Over (US Census 2006)
Figure 5 suggests that couples with children aged 5 to teenagers relocate to attend
school off-island, or that a new group of young families is advancing. In the case of the
Figure 6, perhaps lack of facilities, high cost of living, or the need to draw upon home
equity motivates seniors to leave. Those of working age, 18-64, are the largest age
group as a percentage of Nantucket’s population, as shown in Figure 7.
2000 US Census
Nantucket Age Distribution
19%
70%
11%
Less than 18 Years
18-64 Years
65 Years and Older
Figure 7. Age Distribution (US Census 2000)
Nantucket’s residents are represented throughout an economy that continues to be
dominated by the construction, retail, and service sectors, supported by second homes
and tourism. While median income for year-round residents is above that of the State, it
is offset by higher costs of living, and is insufficient in relation to housing prices.
As of 2006, there were 10,535 housing units on Nantucket, over 4,000 used year-round,
and the balance for primarily non-winter seasonal use.17 The predominant housing type
is the freestanding single family home. Overall density on Nantucket is considered low at
198.3 persons per square mile, when compared to the State, which is about three times
that amount.18 There are distinct areas of relatively higher density population centers,
29
19 See Map 1, Land Use
20 US Census
21 Letter from the United States Department of Commerce dated January 13, 2009
such as the downtown and mid-island/Old South Road corridor, offset by large
uninterrupted open areas in the eastern central area around Altar Rock and other
outlying locations.19
POPULATION
Dramatic growth of the year-round population, beginning in the decade between 1970
and 1980, has continued at a somewhat consistent rate, now estimated at 11,060.20 The
Nantucket Town Clerk contested the Census Bureau’s 2007 population estimate by
submitting anecdotal evidence such as energy use, birth rates, and tonnage of refuse
deposited at the landfill. Upon review by the Census Bureau, the population estimate
was then increased from 10,531 to 11,060.21 Figure 8 illustrates historic growth in
Nantucket’s population. An accurate count of the population is important for a variety of
reasons and the upcoming 2010 US Census is an opportunity to ensure accuracy for the
next decade.
0
2000
4000
6000
8000
10000
12000
1900 1910 1920 1930 1940 1950 1960 1970 1980 1990 2000 2008
YearPopulation
Figure 8. Nantucket Population 1900-2000 (US Census)
According to the most recent US Census estimates, Nantucket County is the fastest
growing County in Massachusetts in terms of percentage since 1990. This statistic is
somewhat misleading however since Nantucket County contains one town, and in terms
of actual growth in numeric population and percentage of growth for Massachusetts’
municipalities, it is not among the highest growth counties or communities, as shown in
Figures 9 and 10.
30
-1
-0.5
0
0.5
1
1.5
2
PercentNantucketMiddlesex SuffolkPlymouth Norfolk DukesWorcester EssexHampshire BristolHampden FranklinBershireBarnstableCounty
2006-2007 Population Increase by Percentage
Figure 9. Population Increase by County (US Census)
-2000
-1000
0
1000
2000
3000
4000
5000
6000
7000
Number of PersonsNantucketMiddlesexSuffolkPlymouthNorfolkDukesWorcesterEssexHampshireBristolHampdenFranklinBershireBarnstableCounty
2006-2007 Population Increase by Number of Persons
Figure 10. Population Increase by County (US Census)
31
22 http://www.census.gov/popest/counties/
23 http://quickfacts.census.gov
24 Source: Population Division, US Census Bureau 2006-2007, release date July 10, 2008
25 Carroll-Bergman, Margaret, Inquirer and Mirror, “Immigrant wave producing some top students
at NHS” February 7, 2008
The increase in population has been dramatic to local residents, with a very small core
population that has tripled since 1970, making the community less of a small town, and
more complex and multi-faceted. Increased population has of course resulted in more
dwellings, vehicles, infrastructure and overall activity. Many areas of the island,
particularly the central mid-island neighborhoods adjacent to the schools and reaching to
the airport, that had once been sparsely developed or vacant, now teem with dwellings
and human activity. It is estimated that Nantucket’s year-round population will continue to
grow at 3% annually, with the year-round population reaching approximately 11,500 in
2010.
Nantucket’s population is now statistically more diverse and, following national trends,
includes more residents and temporary workers from foreign countries than ever before.
Nantucket is one of the three Massachusetts counties with the highest percentages of
international migration, boosting their population estimates from 2007 to 2008.22
Nantucket’s African American population of 9.9% now exceeds the State’s average of
6.9% (2006).23 The island’s Hispanic population grew at the fastest rate statewide
between 2000 and 2007, at 5.17%.24 In 2007, four of the top seniors at Nantucket High
School were “immigrants who came to the island as 9-, 10-, and 12-year olds, barely
speaking English,” from Bulgaria, Thailand, El Salvador and Lithuania.25
It is estimated that Nantucket’s summer population exceeds the year-round population
by a factor of four to five, approximately 40,000 to 50,000 persons during the peak
months of July and August. During this time, Nantucket fills with year-round and summer
residents, tourists and day-trippers, a rhythm that has remained somewhat consistent for
at least the last fifty years. Economic indicators, assessed value of vacation homes, and
anecdotal evidence all suggest that the summer population is wealthier than in most
second home areas of Massachusetts, and Nantucket is among the most prestigious
areas of the nation for a summer or second home address. Shoulder seasons in the
spring and fall are active, with winter still being an annual low point of population, as
many year-round and seasonal residents leave for warmer destinations.
32
26 Denby Real Estate http://blog.denby.com, (September 2008 Inventory Report)
HOUSING
Rising property values have been, until recently, constant on Nantucket. Median values
soared from $795,000 in 2000 to $1,475,000 as of September 2008.26 Like the rest of the
nation, a significant downturn in real estate is now affecting Nantucket. Figures 11 and
12 illustrate this point.
Median Home Sale Price
$0
$500,000
$1,000,000
$1,500,000
$2,000,000
19971998199920002001200220032004200520062007Sep-08YearDollars
Figure 11. Median Home Sale Price (Source: Denby Real Estate Inc.)
Average Home Sale Price
$0
$500,000
$1,000,000
$1,500,000
$2,000,000
$2,500,000
19971998199920002001200220032004200520062007Sep-08YearDollars
Figure 12. Average Home Sale Price (Source: Denby Real Estate Inc.)
Affordable housing has become one of the most serious issues affecting Nantucket, and
both the Board of Selectmen and Planning Board have prioritized addressing this issue
as part of this Plan.
33
27 http://quickfacts.census.gov
28 Town of Nantucket records
29 U.S. Census Bureau, State & County QuickFacts
30 Town of Nantucket Tax Assessor Records: March 23, 2009
31 Nantucket Build-out Analysis: 1997
32 EOEA Build-out
Of the 9,176 housing units existing in 2000, 86.8% of them were freestanding single-
family homes.27 Between 2000 and 2007, building permits were issued for 1,631 new
units28 although some of these permits were for replacement homes or “teardowns.” The
US Census in 2006 estimated the total number of dwelling units to be 10,535.29
Based on Nantucket Tax Assessor records, there are 5,246 lots with single-family
dwellings, 2,141 lots with two or more dwellings and 1,696 vacant parcels of land.30
BUILD-OUT STUDIES
Several studies of the island’s build-out have been conducted over the years, the most
recent being completed in 1996 by the NP&EDC, and in 2000 by the State. The
conclusions of each could not be more different. The earlier build-out study estimated
over 25,000 new dwelling units, while the State estimated 2,128. Both are significantly
out of date and employ questionable methodology. Such studies are an inexact exercise
and depend on existing zoning allowances. The earlier study assumed that all land
would be developed, and all lots would contain two dwelling units as allowed under
zoning.31 The latter discounted 80% of the town’s total acreage as unbuildable because
of wetlands and other constraints, and only accounted for by-right development.32 The
true build-out perhaps lies somewhere in between these numbers. Ultimately, these
numbers fail to tell the entire story about the future of Nantucket, as a “dwelling unit” is
assumed to be a free standing structure, which is not accurate (as in the case of an
accessory apartment or conversion of a duplex in an existing structure). Other factors
such as property assembly are not included, and the fact that zoning can be changed or
waived, as through the MGL Chapter 40B process, discussed under the Housing
Chapter of this Plan.
Focusing on build-out in smaller, manageable areas, through a neighborhood-based,
interactive process (known as Area Plans), has allowed the development of meaningful
estimates and actions in reducing or managing potential build-out. This Plan’s intent is to
reduce overall build-out not just in terms of dwelling units, but also in other intensity-
related factors concerning size and bulk of structures, and utilization of land, such as
protecting residential areas from industrial uses and vice-versa. The Plan envisions
balance; density in some areas will be reduced, and many will remain constant or, in
some limited instances, be allowed to expand. In accordance with the Town and Country
concept, reductions will primarily occur within the Country Overlay District (COD) areas,
and most increases encouraged within the Town Overlay District (TOD). There may be
exceptions to this principle to achieve consistency between zoning district and location in
the TOD or COD. Changes which reduce density in the TOD may occur due to goals of
an area plan, or change to a commercial district, which sets a higher minimum lot size. In
the COD, changes within LUG zoning districts might be allowed in accordance with area
plans, or to achieve overall goals of the plan for village centers, for example.
NANTUCKET ZONING – DISCUSSION
34
33 Observations of the Planning Director
34 CCP, page 32
35 Ibid, page 41
36 Ibid, page 48
The Zoning Bylaw is the most basic element for any community, providing both the
foundation and outline for its future physical development. Nantucket’s history with
establishing zoning, discussed in more detail in the Land Use Chapter, has been one of
aversion and compromise. According to many of those involved, the highly controversial
process leading to the adoption of the Zoning Bylaw in 1972 was largely based upon
recommendations of the 1970 plan, but influenced by highly charged political events of
the time. Compromises and changes were made to assuage fears concerning the
downtown redevelopment, and to win the support of large landholders and their families,
by mapping large undeveloped areas as commercial.33
Analyzing what is possible under the existing zoning has been an important and early
task of this Plan’s process. It revealed numerous conflicts and unanticipated potential.
The Planning Board has long sensed a growing dissatisfaction with Nantucket’s zoning,
found in the early Goals and Objectives documents and continuing through to the
present time. Recommendations for changes appear in all post-1970 planning
documents, but until recently, lacked definition. As examples, the CCP recommended
the following as objectives, but again without specificity:
▪Objective 1.1: “To make the distinction between Town and Country
Districts;”34
▪Objective 1.7: “To support existing neighborhoods located in the Country
Overlay
District;”35
▪Objective1.10: “To place limits on the spatial extent of growth and the size
and
character of new development”36
An important goal of this Plan is to provide such specificity, in terms of constructive
changes to the zoning bylaw, which will represent the intent of these and other
recommendations advanced from the CCP.
Staff analysis of zoning potential revealed existing areas that appear fully built-out, yet in
fact have extensive capacity for re-subdivision, and substantial numbers of new
dwellings. The Board and staff were concerned that the Town was either not ready for, or
unsupportive of, certain actions, especially actual zoning changes. In accordance with
the stated intent of the 41-81D Statute, the broadest possible process to include the
public, between the summer of 2005 and close of 2008, was implemented.
35
37 December 14, 2005 BOS presentation
38 2005 Town of Nantucket Annual Report, page 83
CHAPTER 1: GOALS AND POLICIES STATEMENT
INTERACTIVE PUBLIC PROCESS:
Planning process is not known for being the most exciting or entertaining of venues. The
Planning Board recognized that an intensive process had been employed in the
development of the CCP; its members participated in many of the four and a half years of
consultant studies and workgroup efforts that contributed to its development. Many
individuals had invested considerable amounts of time in the process, and many policies
were worthy of further development.
A series of non-binding ballot questions, and a questionnaire included in the Town’s
annual census, were the first efforts of the Planning Board to expand input for the
following reasons:
▪To broaden the level of participation
▪To reach residents who are not typically represented
▪To prove or disprove our assumptions, level of understanding, and general
direction37
Preparation of warrant articles to test assumptions and results of the
ballot/questionnaires inspired direct contact with affected residents of potential Planning
Board recommendations, and the Board and staff learned many lessons, enough to
continue this process through successive Town Meetings. The Board and staff also
realized several important tools in the zoning bylaw were missing, including appropriate
zoning districts, and that unsupportable mapping of the TOD and COD needed
correcting.
THE INTERACTIVE PUBLIC PROCESS: A TIMELINE
BACKGROUND INFORMATION
In August of 2000, the NP&EDC and the Board of Selectmen decided to pursue a
Comprehensive Community Plan (CCP), rather than a 41-81D Plan under state statute.
In January, 2001, the CCP was “ratified” by NP&EDC, and discussed at a recessed
Special Town Meeting. The building cap and numerous other articles related to the CCP
were not approved. In December of that same year, the building cap, a key element of
the CCP, expired. Town Meetings from 2002 through 2004 approved various CCP
related articles, such as the Nantucket Housing Needs Covenant program. In June of
2004, the Planning Board prioritized the need for a 41-81D Plan. In October of that year,
a new NP&EDC Chairman was elected.38
2005
After a shift in leadership at the Planning Office, in both staff and elected officials, initial
discussion of the need for a 41-81D plan commenced in May with the Board of
Selectmen. A new Planning Director was appointed in June, and the BOS authorized
$50,000.00 for the preparation of a Master Plan. Later that month, the Planning Board
outlined a preliminary, timeline. By August, a general direction had been determined,
and a website was activated; in the fall, forums on each element were held. In
November, Town census questions were developed, and in December, an additional
36
39 Appendix B: Survey and Ballot Question results
40 Planning Board, minutes January 22, 2007
discussion with the BOS was held. In 2005 the Planning staff met with the Board of
Selectmen on four (4) occasions to discuss the progress of the Master Plan.
2006
At the April Annual Town Meeting, test articles for zoning changes were voted; non-
binding ballot questions were voted at the polls. In June, discussion with the BOS
continued. Based on the support of the Town and Country concept demonstrated by
census and ballot question results,39 warrant articles implementing the TOD and COD
were adopted at Special Town Meeting in October. Three hundred, ninety-nine (399)
acres of TOD changed to COD and 17 acres of COD changed to TOD. In 2006 the
Planning staff met with the Board of Selectmen on two (2) occasions to discuss the
progress of the Master Plan.
2007
At the ATM in April, more test articles for zoning changes were adopted. The Land Use
Planner position was filled after a two-year vacancy, restoring the staff to its necessary
capacity.
2008
ATM adopted articles restructuring much of the zoning bylaw, including the
implementation of an industrial zoning district. At the end of September, a Draft Plan was
released for a 60 day comment period. A joint BOS/Planning Board informational session
was held in October, and the first Public Hearing before the Planning Board occurred a
month later. Public comment ended December 1, and a second Public Hearing before
the Planning Board was held on the 4th. In 2008 the Planning staff met with the Board of
Selectmen on two (2) occasions to discuss the progress of the Master Plan.
2009
The Master Plan was approved by the Planning Board and determined to be complete by
the NP&EDC on March 30, 2009. At the Annual Town Meeting in April, Warrant Article
26, which proposed acceptance of the plan, was unanimously approved without
discussion.
METHODOLOGY
The Planning Board discussed general goals at its August 29, 2005 meeting. Thereafter,
the Board requested that the staff combine the extensive work of the Steering Committee
of the CCP with the extensive input received over the past three years. Some of the CCP
values and policies, embedded in its goals and objectives, were carried forward with
modifications. The Board discussed the adoption of the general goals for each element
on January 22, 2007.40 Each contains edits or changes, removing possessive “our”
language, simplifying intent, and removing multiple references. During the preparation of
the draft Plan, released on September 30, 2008, fifty-eight (58) “objectives” of the CCP
were advanced and seventy-one (71) were not. An explanation of why those “objectives”
were removed is found in Appendix C. In addition, a review of the 1990 Goals and
Objectives was conducted by staff. Objectives were found to be implemented, obsolete
or covered by the current Plan. Changes to the plan were made by the Board as a result
of input received during the public comment period (Appendix D) including those at an
informational meeting held with:
37
41 The Urban Design Group, Master Plan for Nantucket Island, Nantucket Planning Board, 1970,
Book 1, p. A-1 to A-2.
42 37% answered “I support more regulations that would curtail most new growth.” Only 8%
supported more growth.
▪Board of Selectmen
o October 15, 2008
▪Planning Board
o November 17, 2008
o December 4, 2008
▪Finance Committee
o October 15, 2008
▪NP&EDC
o February 2, 2009
VISION
The Board and staff articulated a vision for the physical development of Nantucket based
on its detailed review of prior documents, experience with land-related issues, review of
detailed questionnaire comments, non-binding ballot questions, and public input. This
vision is for a future that is not radically different from what it is today. Most do not feel
that Nantucket should change into something else, but instead remain close to what it is,
or as remembered through nostalgia. Change is difficult to accept on Nantucket,
although unavoidable, as noted in the first master plan:
“One of history’s greatest lessons is the inevitability and continuity of the process
of change. Whether by man-made or natural forces, change is perhaps the only
constant in human history. To attempt to resist change is to court disaster: to
attempt to accommodate and direct change is to believe in the possibility of a
better world. Change undirected is chaos; change, directed or managed is order,
truth and beauty.” 41
There is consistent concern expressed about development, and most respondents to
both survey and non-binding ballot questions want less development,42 and support
changing zoning allowances, as evidenced by past voting. Achieving this result requires
balance between individual rights and economic and legal realities, a process that is not
easily explained or accomplished. It involves change, primarily in land use related
elements that are explained in great detail in the Land Use chapter. In fact, land use
reforms have consistently been reported by planning staff, and supported by the
Planning Board, as requiring the most extensive attention, in turn affecting most other
elements in this Plan.
It is important to realize that overall reduction of growth will not occur in all areas.
Generally the intent of the TOD and COD is to allow growth in the TOD and discourage it
in the COD.
38
Figure 13. Town and Country Overlay Districts
The most effective growth management techniques to date have been land acquisition,
review by the Historic District Commission, and perhaps through the lack of utility
services, with somewhat secondary importance placed on zoning. Reliance on “one-size
fits all” zoning measures is proposed to be replaced with more tailored standards. As a
result, some limited areas are proposed to allow more overall density, such as the Town
commercial districts, and Residential 5 and 10 districts, under certain conditions related
to affordable housing creation and unit sizes. In the COD areas, removal of TOD zoning
districts through mapping, altered standards such as setbacks and height developed
through the area plan process, and reduction of barriers to open space creation, will
provide greater protection.
Developing a vision that a majority can agree on is a daunting task, considering the vast
differences between many residents in age, incomes, life experiences, etc. Ultimately
however, there are some basic concerns on which all would likely agree. Safety,
security, economic stability, beauty, and maintenance of homes and infrastructure, are
all important to the “long-term physical development” of Nantucket. In addition,
Nantucket has high standards for its built-environment including, but not limited to:
landscaping, streets, property maintenance, and public buildings. It is usually quite
apparent which areas are deficient. However, these standards are not well defined, and
as a community, there has sometimes been a propensity not to pay for resources
needed to maintain these high standards for public assets as evidenced through both
Town Meeting and ballot votes. In many ways, most would recognize that the quality,
appearance, and strong historical connection of Nantucket are absolutely essential to its
economy, dominated by tourism and second-home related sectors. The vision is
therefore highly related to maintaining established patterns, and ensuring that changes
enhance or, at least, do not detract from the island’s character.
Comments about detraction of character generally tie back to housing and land use, the
following found in many written comments from the Town questionnaire and frequently
expressed to the Planning Board at public hearings:
39
▪overcrowded, poor quality, badly maintained housing in some areas;
▪lack of affordable housing island-wide;
▪car-related impacts – too many and not enough places to store them;
▪encroaching development on remaining natural areas;
▪overuse of resources such as beaches;
▪litter; and
▪barren streetscapes in commercial areas outside of the town.
The visions articulated below are broken into two categories, TOD and COD, because
these areas and sub-areas within each are in fact entirely different in appearance,
function and scope. Overall, the vision of both areas must respect Nantucket’s historic
and cultural codes, which are discussed in Chapter 5, and should be embedded in
bylaws and statutes where possible.
TOWN
The future vision must start with its traditional port of entry and “center.” This is its
venerable commercial downtown core, branded by a signature cobblestoned Main
Street, a commercial district free of formula retail stores, and abundant with welcoming
institutions and cultural activities. It is surrounded by a residential historic district, which
will continue to be cherished, maintained, and viable. This area will remain as the
symbolic “heart and soul” of the community, and be representational of Nantucket in
memories, and in media to the outside world. The downtown core will still bustle with the
activity of residents and visitors of all ages, socio-economic backgrounds, and cultures,
hopefully for a longer season than currently exists. In this core, more residents will live
above businesses in second and third floor dwelling units. There will be ample
opportunities for public gatherings, festivals, and community interaction. Places of quiet
beauty for resting or viewing the harbor will be provided, as well as numerous ways to
welcome newcomers and visitors. The harbor will remain active, accessible, and visible
through public walkways and sites of importance. The downtown core will function well,
due to improved parking strategies, and better, more comfortable, public transportation
facilities. The residential historic district surrounding the downtown will be the same
blocks of historic homes, the majority of which are fully restored and maintained, with
gardens and trees. Many of these homes will be of museum quality, but will be full of life,
hosting family events, and creating a lifetime of memories. Well-maintained sidewalks,
shaded by trees, will encourage walking and appreciation of all of these resources.
The commercial part of the mid-island area will evolve into an attractive district, with a full
range of retail, office, and dining options, catering primarily to year-round needs. It will
not compete with downtown, but will be complementary, accommodating businesses that
may not be able to locate downtown, such as automobile service, grocery, and building
products. Mixed-use structures will house both business and residential uses, and more
residents will live in this district. It will be more attractive and less “mainland” in
appearance and function in the future, through better development, site planning, and
overall management.
Distinctive neighborhood-based commercial areas will thrive around existing commercial
nodes, becoming individualized, and developing their own “personalities.” This will
emerge depending on their location, and be influenced by the residential areas that they
serve within walking distance. The scale of these areas will be smaller than the
downtown or mid-island areas, and the focus will be on serving local needs. Area plans
will have guided the specific standards and appearance of these neighborhood districts.
40
Figure 15 in the Land Use section (page 47) illustrates this overall concept and
relationship to both the downtown and mid-island districts.
All of the above commercial areas will support locally created products to the greatest
extent possible, allow for mixed-use, smart-growth development, foster identity, and
provide a wide range of goods and services.
Within the Commercial Trade, Entrepreneurship, and Craft (CTEC) district, businesses
incubated in homes, through hard work, will prosper and develop. In the Commercial
Industrial (CI) district, heavy duty uses, needed to allow our community to operate, will
be segregated from residential and environmentally sensitive areas. The airport will be
well managed in this district, and, as the island’s secondary port of entry, remain true to
its mission.
Residential areas will be attractive and pleasant, protected from nuisances. Streets will
be clean and well maintained, with ample vegetation, including trees, to provide shade
and protection for pedestrians and adjacent homes. Areas of high and moderate density
will allow for neighborly interaction at nearby public parks, sidewalks, and bike paths, or
from porches, or over fences. Front yards may be smaller in these areas, but they will not
be filled with cars. The priority will be to locate parking on the sides of, or behind,
homes. Suburban areas of moderate density will retain more landscaping and setbacks,
providing more “breathing room.” A low density district, Residential-40, occurs within the
Town, at the edges of the TOD and COD boundaries, to provide for a gradual, as
opposed to an abrupt, transition.
Traffic congestion will be minimal, streets highly maintained, free of litter and damages,
with proper bus stops, sidewalks, and bike paths as appropriate. Parks, playgrounds,
and quiet open spaces linked by paths shall all be in the immediate vicinity. Trails
through open space corridors will lead to the COD.
COUNTRY
The majority of the island will remain low density, with large swaths of open space
remaining green and natural. Habitat for rare and endangered species, managed so that
a variety of landscapes survive and prosper, will be plentiful. Special natural features
with cultural importance, such as spectacular beaches, ponds, land forms, forests and
moors will be protected and properly managed as well. Estate properties, farms,
traditional rural businesses, and villages will exist within this area. Villages will maintain
their own unique character and personalities, which shall be articulated through area
plans. Development will be of substantially lower intensity than that of town, and
standards, rules and regulations shall be adjusted to encourage that the maximum
amount of open space protection is prioritized in these areas, while respecting and
balancing private property rights.
IDEAS FOR SUSTAINABILITY
Nantucket has the natural resources – wind, tidal, and solar power – to achieve energy-
independence and can be a leader in alternative energy production and sustainability
practices. Toward this end, the Town of Nantucket joined the International Council of
Local Environmental Initiatives (ICLEI) in July of 2008 and committed to completing, with
the assistance of the volunteer Energy Study Committee and Sustainable Nantucket, a
local non-profit, the milestones of ICLEI’s Cities for Climate Protection Campaign. These
41
43 Edited from CCP, see p. 17
include assessing the communities current carbon emissions (January 2009); setting
targets for reduction (May 2009); completing an Energy Plan (December 2011);
implementing the Energy Plan and reassessing the communities carbon emissions by
the targeted reduction date.
Furthermore, in the short run, Nantucket must take a leadership position in the area of
"green" construction and sustainability. Nantucket has always imported materials from off
island and this trend will not change. Materials conservation, energy and water
efficiency, and building with an eye towards location and site sustainability are all key
tenants of the "green" construction methodology. In many ways, Nantucket is already
leading the way. Existing codes encourage smart growth strategies. Moving houses to
re-use them, or use of the local "take it or leave it" have been the standard for materials
conservation. Nantucket, as a community, can look to its historical precedents and find a
linkage with the modern "green" construction movement.
OVERALL MISSION STATEMENT:
Based on the foregoing discussion, the Planning Board adopts the following as its overall
mission statement:
“To create and sustain a healthy community, one whose residents have
stability and security, with resources protected for future generations.”43
VALUES:
In addition the Board adopts the following as the Plan’s community values:
Protect the quality of residential districts of Nantucket.
Protect open spaces and natural resources.
Enhance the ability of Nantucket residents to live and work on the island.
Protect the historical integrity of the landscape and buildings.
Maintain a strong, tourism-based economy.
Maintain access to beaches and open space.
Provide a healthy environment for all residents.
GOALS AND POLICIES:
In accordance with the Methodology and Vision, the Planning Board determines the
following goals and policies by elements stated below:
LAND USE: CHAPTER 2
GOAL 2.1: To preserve Nantucket’s character, based on a settlement pattern of a
densely settled Nantucket “Town,” separated and distinguished by intervening areas of
largely undeveloped rural land (“Country”), containing neighborhoods of “villages,”
including Cisco, Dionis, Madaket, Pocomo, Quidnet, Siasconset, Surfside, Tom Nevers,
and Wauwinet.
POLICY:
2.1.1: To make the distinction between Town and Country. (CCP 1.1)
2.1.2: To mitigate development in the Country Overlay District through land
acquisition, conservation restrictions, regulatory methods, and incentives. (CCP
1.6)
42
2.1.3 To match existing development patterns, minimizing the creation of zoning
nonconformities to the greatest extent possible.
GOAL 2.2: To define and develop standards for growth appropriate for the patterns set by
the existing built environment.
POLICY:
2.2.1: To create area plans, through a participatory process, to facilitate zoning
district changes that implement the concept of “Town” and “Country,” and to
foster the creation of areas with neighborhood services. Such plans would
identify neighborhood residential and service areas. (CCP 1.2)
2.2.2: To encourage the retention of small neighborhood centers consisting of
mixed-use development. (CCP 1.4)
2.2.3: To protect established residential neighborhoods. (CCP 1.4)
2.2.4: To reserve commercial-only and industrial-only zones, while guarding
against commercial sprawl. (CCP 1.4)
GOAL 2.3: To better manage the design and location of new residential and commercial
development, in a manner that island-wide:
Protects important natural and cultural resources;
Is compatible with the island’s historic character;
Minimizes dependence upon the automobile;
Creates opportunities for affordable housing
depending on location:
a.Encourages development in or near village centers (COD);
b.Promotes and preserves the vitality of downtown (TOD).
POLICY:
2.3.1: To preserve the character and integrity of our traditional town centers,
especially the Old Historic Districts of Nantucket and Siasconset. (CCP 1.3)
HOUSING: CHAPTER 3
GOAL 3.1: To provide for the housing needs of residents, specifically targeting
affordability for the year-round, working community.
POLICY:
3.1.1: To provide incentives, especially in the TOD, for the creation of restricted
housing units, preferably in perpetuity. (CCP 2.3)
3.1.2: To develop public/private partnerships to create new housing opportunities
for those committed to year-round residency, dispersed throughout the
community. (CCP 2.4)
3.1.3: To develop strategies designed to encourage the retention of year round
owner occupied housing units. (1990 Goals and Objectives E-2.1)
3.1.4: To meet the planned production of goal of 20 affordable dwelling units per
year.
GOAL 3.2: To provide housing for seasonal employees, in both the public and private
sectors.
POLICY:
3.2.1: To provide seasonal employee housing, dispersed throughout the
community. (CCP
43
2.6 and 2.7)
GOAL 3.3: To meet the needs of senior citizens and those with special needs.
POLICY:
3.3.1: To support and promote any efforts of the Town of Nantucket or other
entities to expand affordable housing opportunities for senior citizens. (CCP 2.8)
3.3.2: To meet the need for housing and related care for special needs
populations. (CCP 2.9)
ECONOMIC DEVELOPMENT : CHAPTER 4
GOAL 4.1: To promote a healthy, balanced, year-round and seasonal economy that
improves the quality of life for island residents, stressing support for local businesses
and workers.
POLICY:
4.1.1: Build a stronger year-round economy and restore and support downtown
as a year-round business and employment center. (CCP 3.3)
4.1.2: To encourage the expansion of existing year-round businesses and
establishment of new year-round businesses in the mid-island area, in a manner
that promotes a cohesive, pedestrian-friendly, mixed-use retail, service, and
residential area. (CCP 3.4)
4.1.3: To encourage and develop opportunities for low-impact, home-based
businesses. (CCP 3.11)
4.1.4: To provide improved public services, particularly in the downtown area.
(1990 Goals and Objectives F-1.5)
4.1.5: To support and cultivate a wide variety of small scale economic activities
that may be easily integrated into the community with little or no adverse impact
on island resources. (1990 Goals and Objectives F-5)
4.1.6: To promote agricultural industries. (CCP 3.8; also see section 6.3.2 of this
plan)
4.1.7: To promote and support sustainable fisheries. (modified CCP 3.7)
4.1.8: To support the development of small businesses that provide the goods
and services for increasing energy efficiency and utilizing alternative energy.
NATURAL & CULTURAL RESOURCES: CHAPTER 5
GOAL 5.1: To identify and preserve the natural, historic, and expand the cultural
resources of the community.
POLICIES:
NATURAL RESOURCES
5.1.2: To investigate and recommend environmentally responsible technologies
in order to protect and preserve Nantucket’s beaches, dunes, and coastal banks.
(CCP 4.4)
5.1.3: To protect the island’s shorelines from encroachment by development.
(CCP 4.5)
5.1.4: To preserve and enhance the water quality of Nantucket’s harbors in view
of the substantial environmental, aesthetic, recreational, and economic benefits
that such protection would afford. (CCP 4.7)
5.1.5: To support the responsible development of alternative energy sources,
including wind, tidal, wave, and solar.
44
HISTORICAL RESOURCES
5.2.1: To better document Nantucket’s historical resources. (CCP 4.10)
5.2.2: To strengthen the protection of the island’s historical resources. (CCP
4.11)
5.2.3: To identify and protect important archaeological resources that might be
threatened by development. (CCP 4.13)
CULTURAL RESOURCES
5.3.1: To recognize, support, and expand the island’s arts and cultural
enterprises as significant contributors to the Nantucket economy. (CCP 3.9)
5.3.2: To consider creating a Performing Arts Center. (CCP 6.31)
5.3.3: To enhance recognition of and support for the island’s arts and cultural
community as important to the island’s economic and spiritual well-being. (CCP
7.10)
5.3.4: To preserve the tradition of public access to Nantucket’s shoreline, while
weighing such access against the need to protect sensitive shoreline and inland
water resources, and the rights of property owners. (CCP 4.3)
OPEN SPACE & RECREATION: CHAPTER 6
GOAL 6.1: To protect Nantucket’s native ecosystems and biodiversity.
POLICY:
6.1.1: To aggressively acquire land and conservation restrictions to protect
natural ecosystems. (CCP 4.1)
GOAL 6.2: To maintain the quality of Nantucket’s water bodies.
POLICY:
6.2.1: To preserve and enhance the water quality of Nantucket’s inland ponds.
(CCP 4.8)
GOAL: 6.3: To establish and manage an island-wide network of publicly and privately
held open spaces, intended to protect critical land and water resources, habitats, and
scenic vistas, while affording reasonable public access, consistent with a policy of wise
stewardship.
POLICY:
6.3.1: To establish connecting open-space corridors extending from the
greenbelt into the TOD, and to preserve and establish private and public
greenspace throughout the district. (CCP 1.5)
6.3.2: To support agriculture as an important economic activity and as a critical
component of the traditional landscape. (CCP 3.8)
Goal 6.4: To provide park and recreational facilities that meet the diverse needs of
residents and visitors of all ages.
POLICY:
6.4.1: To expand recreational facilities to meet the increasing needs of residents,
seasonal employees, and visitors. (CCP 6.24)
SERVICES & FACILITIES: CHAPTER 7
45
GOAL 7.1: To provide facilities for a municipal government that meets future needs.
POLICY:
7.1.1: To retain and expand governmental offices downtown. (CCP 6.28)
GOAL 7.2: To provide educational facilities.
POLICY:
7.2.1: To provide high-quality educational facilities adequate to meet present and
future growth needs. (CCP 6.26)
7.2.2: To improve school facilities to meet a variety of community needs. (CCP
6.27)
GOAL 7.3: To provide police and fire facilities and services.
POLICY:
7.3.1: To provide adequate public-safety facilities for a rapid response to
emergencies throughout the island. (CCP 6.16)
7.3.2: To provide a safe, secure environment for all residents and visitors. (CCP
7.1)
GOAL 7.4: To maintain and protect the quality and quantity of the island’s groundwater
resources, ensuring a healthy drinking water supply.
POLICY:
7.4.1: To provide a public water-supply system that safeguards adequate fire
protection.
(CCP 6.11)
7.4.2: To upgrade the existing public water-supply transmission, distribution, and
storage systems. (CCP 6.13)
7.4.3: To enhance the current administrative and operational structure of the
island’s two water companies. (CCP 6.14)
GOAL 7.5: To process the island’s solid waste in a manner that maximizes the recovery
and recycling of materials, and minimizes permanent land-filling.
POLICY:
7.5.1: To increase the effectiveness of the island’s innovative solid-waste
recovery facilities.
(CCP 6.9)
GOAL 7.6: To provide for sewage disposal that protects the island’s sole source aquifer,
incorporating expansion capabilities to meet projected growth.
POLICY:
7.6.1: To extend sanitary sewer systems to the Town Overlay District. (CCP 6.6)
7.6.2: To extend the sanitary sewer system to areas of the island where it is
deemed to be the most prudent and cost-effective way to protect the island’s
water resources. (CCP 6.8)
GOAL 7.7: To provide energy and utility services to the community in a manner that is
affordable, efficient, and environmentally safe.
46
POLICY:
7.7.1: To continue the program of placing utility lines underground. (CCP 6.17)
GOAL 7.8: To provide for the physical, social, health-care, and economic needs of the
community, by providing those public and private human services which improve for all
ages.
POLICY:
7.8.1: To consider central facilities for human/social service agencies to enhance
the effectiveness of health-care services. (CCP 6.30)
7.8.2: To provide adequate sustenance for all residents. (CCP 7.2)
7.8.3: To establish and expand programs that promote the physical and mental
health of the community. (CCP 7.6)
CIRCULATION (TRANSPORTATION ): CHAPTER 8
GOAL 8.1: To minimize the number of cars coming to the Island and their use once they
are here.
POLICY:
8.1.1: Shorten distances between trip origins and destinations by promoting a
Town and Country settlement pattern.
8.1.2: Offer an array and interconnection of alternative transportation modes to
the traveling public.
8.1.3: Provide the public with information for using the island’s alternative
transportation
modes.
8.1.4: Reduce the amount of development that could be built on the Island.
8.1.5: Create options and alternatives for parking in the downtown area.
8.1.6: Utilize the telecommunication infrastructure as a means to reduce the
number of trips.
8.1.7: Ultimately, find an equitable and legal way to limit cars coming on-island.
GOAL 8.2:To provide a transportation system that will move people and goods to,from,
and around the Island in a way that is safe,convenient,economical,and sensitive to the
character of the various areas of the Island.
8.2.1: Reduce traffic congestion and improve safety in the vicinity of Nantucket's
schools.
8.2.2: Consider environmental and historical impacts of any transportation
system improvement.
8.2.3: Rely upon road design and traffic control approaches that maximize public
safety.
8.2.4: Accommodate the need for bulk delivery of commodities to the Island in a
manner that is efficient, cost-effective, and in keeping with the character of the
community.
8.2.5: To provide for safe and convenient access to the island through its other
port of entry, Nantucket Memorial Airport, while considering the island's
environmental and historical limitations.
8.2.6: To provide an efficient and convenient water-transportation system that
connects mainland ports with Nantucket Harbor.
47
8.2.7: To encourage the coordination of land side services on Nantucket at time
of ferry arrivals.
8.2.8: To encourage the provision of freight service to the island that is
dependable, affordable, and meets the economic needs of the island, while
considering the land-side effects of scheduling, vehicle size, and trip frequency.
8.2.9: To coordinate Steamship Authority and private passenger carrier arrivals
and departures with land side transportation.
8.2.10: To improve traffic congestion and safety in the vicinity of ferry terminals.
48
44 MGL Ch. 41, sec. 70-22
45 Ch. 1 of the Acts of 1951
46 Ch. 601 of the Acts of 1955
47 Warrant Article 12, ATM 1972, April 11, 1972
48 Expanded in 1970.
CHAPTER 2: LAND USE
Nantucket residents have always greeted restrictions on the use of their land with
resistance and argument. At the 1928 Town Meeting, the Town accepted a state law44 to
create a five-member Planning Board, but neglected to appoint any members. In
the1950’s, the Town voted to reject a ballot initiative on the issue of zoning.45 The island
did adopt the Subdivision Control Law in 1955 and created a Planning Board, as well as
a Historic District Commission (HDC) encompassing the downtown core and surrounding
residential district and the village of Siasconset;46 but both operated without the basic
dimensional and use parameters of zoning. In 1966, Town Meeting authorized a zoning
committee, and its work led to the island’s first Master Plan in 1970. Adoption of zoning
repeatedly failed at Town Meeting, however, and the issue became politically charged. In
the early 1970s, the so-called Kennedy Bill, characterized as an attempt to put the entire
island under federal control, combined with a series of troublesome, large-scale
developments, finally spurred residents to adopt zoning in 1972.47
Since then, the combination of the combative initial process, years of steady growth, and
the application of out dated standards have resulted in a physical environment that is
generally acceptable, but lacks defined standards in areas of higher density. As a land
use strategy, zoning has received secondary priority. Instead, aggressive land
acquisitions for open space and extensive review by an island-wide HDC48 have been
the most actively used growth management tools.
Nantucket’s zoning has established a lower density in outlying areas and has helped to
concentrate density in the downtown and mid-island areas. Commercial activity was also
somewhat contained, with an organic rise of commercial centers at certain locations. For
better or worse, those areas are now established and should be improved. Despite the
general benefits, the struggle to establish zoning led to compromises which must now be
addressed. These compromises include: locating industry in the wellhead district and
residential neighborhoods, concerns regarding sprawl, and moderate density areas
lacking essential services such as water and sewer. Barriers left over from the 1970s,
including renewable energy standards that are obsolete, special permit requirements for
cluster subdivisions, and rigid dimensional and use standards that force a “one-size-fits-
all” approach to development, must be removed. Some examples of the “one-size-fits-all”
are the maximum height requirements and home occupations standards that are the
same for all zoning districts.
An effective change will only be successful through participation at a grassroots level.
Zoning is a critical tool that must be embraced; its fluid evolution is essential. A
framework for the future, based on the neighborhood patterns established since zoning
began, must be put in place. The implementation of this process will contribute to a safe,
viable community that will place less stress on resources and infrastructure, thereby
lightening the impact on this geographically contained space. Zoning must provide the
tools to deal with inevitable and dynamic change that occurs by both natural and man-
made events.
49
49 Appendix B: survey results
The Town and Country concept, tested through surveys and ballot questions,49 has
found support to fix problem areas and further define the neighborhoods that have
evolved since 1972. With the resistance of the past in mind, in 2006 the Planning Office
began testing Town Meeting’s resolve to address zoning issues. Support was evident
throughout the past four consecutive Town Meetings. This wave of change continues, as
increased basic thought on land use implementation in the community has resulted in
active neighborhood participation and the creation of area plans. Organized
neighborhood groups and associations have now approached the Planning Office,
seeking guidance in developing their plans.
The basic framework for the overall island is commercial and mixed-use areas at the
core of town and the mid-island neighborhoods within the TOD, bracketed by high and
moderate density residences filtering into larger, rural tracts of open and green space
corridors. Village centers in the COD will enable residents to travel shorter distances for
goods, services, and employment, encourage pedestrian and bicycle transport, and
lessen dependence on the automobile. What must be avoided is a linear pattern of
development, the likes of which is seen on the mainland, along major traveled arteries
that result in thick strips of congestion.
Figure 14 illustrates the division of zoning districts into the TOD and the COD by density.
Town Overlay District Country Overlay District
Residenti
al
Commercia
l
Residenti
al
Commercia
l
Siascons
et
High Density
CDT
ROH CMI SROH
R-5 CN SR-1(5)
Moderate
Density
R10 C-TEC VN SR-10
R-20 CI VR SR-20
Low Density
R-40 LUG-1 V-TEC
LUG-2
LUG-3
MMD
Figure 14. Zoning Districts within Town and Country Overlay Districts
The island must incorporate urban, suburban, and rural aesthetics for different areas. In
the TOD, the emphasis must be on neighborhood-building, with clearly defined centers
and a band of high and moderate density in between. Within both the downtown and
mid-island areas, the commercial districts will incorporate predominantly urban design
principles with the smallest setbacks and lots sizes. Neighborhood districts will need the
support of high or moderate density mixed-use areas within walking distance (one-
quarter mile). This will enable residents to walk to services such as public transportation
or small businesses. TEC zones will encompass low-intensity commercial uses that
serve surrounding areas and allow more home-based, emerging commercial entities
such as carpentry shops, artists’ studios, etc. The hierarchy of density for commercial
districts within the TOD is as follows:
50
ZONING DISTRICT
MINIMUM
LOT
SIZE
GROUND COVER
RATIO
Commercial Downtown (CDT)3,750 75%
Commercial Mid-Island (CMI)5,000 50%
Commercial Neighborhood (CN)7,500 40%
Commercial Trade, Entrepreneurship, & Craft
(CTEC)10,000 40%
Commercial Industrial (CI)15,000 50%
Suburban areas, with lot sizes of one-half to one acre, would transition between town
areas and the country.
Figure 15. Commerical Nodes
In the Country, a rural aesthetic that includes village centers must prevail. The COD will
consist of village areas and rural Limited Use General (LUG) lots, and the Moorlands
Management District (MMD). The basic pattern in the COD is the same as town, but
based on lower density village centers (Village Neighborhood: VN), with gradations of
moderate density surrounding them (Village Residential: VR). Emerging businesses
suitable for rural environments may occur in the country commercial districts. The VTEC
(Village Trade, Entrepreneurship and Craft) designation allows lots with a minimum
square footage of 40,000 to accommodate uses that need more space, such as the
brewery, farms, and landscaping companies. Challenges have arisen where areas of
special environmental consideration break the model, such as close proximity to the
harbor or the wellhead. To ameliorate negative impacts that may result from
development in those and other sensitive areas, special overlay districts have been
adopted by Town Meeting.
51
Recent zoning initiatives at Town Meetings have been successful. Appendix A contains
descriptions of articles that have been implemented. These changes matched existing
patterns of development (example: moving neighborhoods zoned for high density
commercial mixed uses to moderate density residential), created the framework
(nomenclature) for a zoning bylaw that is consistent with the “Town” and “Country”
concepts, and demonstrated support for this concept through mapping and boundaries of
the TOD and COD. A map illustrating the areas where the zoning is inconsistent with the
Town or Country designation is shown below.
Figure 16. Zoning Inconsistencies with Town and Country Overlay District
Correcting land use patterns is one of the main planning objectives, both now and in the
future. The results, or lack thereof, effect all other aspects of the Plan, including housing,
economic development, services and facilities, circulation, and open space. Eighteen
planning areas are identified on the map below and each area is shown in detail on
Maps 5 through 23 inclusive, all found in Appendix E.
52
Figure 17. Planning Areas for Zoning Changes
Zoning map changes are critical to implementation, and will therefore be an important
component at Town Meeting for the life of this Plan. A schedule is detailed in Chapter 9:
Implementation.
53
50 Denby Real Estate, http://blog.denby.com (September 2008 Inventory Report)
51 Question 3, 483 of 1,245 respondents
52 Ballot Question #4 at the April 11, 2006 Annual Town Election, 3,409 total respondents
CHAPTER 3: HOUSING
Housing for year-round residents, as well as seasonal employees, is a problem that the
island has faced for decades. Nantucket’s popularity as a fashionable, and profitable,
location for second homes has made it difficult to develop and retain housing for low to
moderate-income residents. In addition, conservation efforts have increased the scarcity
of developable land, and the wide gap between the incomes of most year-round
residents and those of second homebuyers, and vacation renters, has applied even
more pressure to the housing market. In recent years, the intensity of the problem has
risen in severity, now making it a top priority for the Town. The Housing Chapter will be
updated every five years as the State-required “Housing Production Plan” in Appendix F.
LOCAL NEEDS
Given Nantucket’s unique geographical isolation, actions must be taken to avoid the
commuting challenge, and resultant loss of community, that would be created if the bulk
of the island’s workforce could no longer afford to live here. Similar challenges have
been faced in other high-income, resort, and geographically-contained communities such
as Aspen, Colorado. Like Aspen, the household earnings of many year-round residents
on Nantucket are too high to qualify for affordable housing under state and federal
programs; however, their earnings are not high enough to purchase most of the houses
on the open market. As of September 2008, the median home price was $1,475,000.50
With rental prices reflecting the high property values, many rentals are out of reach as
well. Due to this dynamic, it is clear that moderately priced housing is needed as much
as lower priced affordable housing. For many, purchasing a home will be unattainable
without creative housing solutions involving multiple dwelling units of various types, with
some form of subsidy.
Nantucket has attempted to encourage affordable and moderate income housing
production through zoning incentives including, but not limited to: bonus lots in Major
Residential and Cluster Subdivisions; increases in ground cover in certain districts; and
the subdivision of existing properties into primary and secondary lots. These incentives
have yet to produce affordable housing in accordance with their intent. A survey
distributed with the 2005 Annual Town Census asked what role the Town should take, if
any, to encourage affordable housing. The majority of respondents, approximately 39%,
felt that the Town should adjust its laws (zoning, taxes, etc.) to provide incentives for the
private sector to create affordable housing.51 In a 2006 non-binding ballot question, 49%
of voters were in favor of, and 45% were against, the Town of Nantucket developing and
managing housing on public land for low to moderate income households within the
community.52 Based on these responses, partnerships with private entities and
improved incentives are essential to solving the housing issue on Nantucket.
AFFORDABLE HOUSING – LOWER INCOME
Affordable housing is an important component of retaining year-round residents and a
year-round workforce. Many existing and future jobs are forecast for the lower wage
retail and service sectors, which generally have entry level salaries. Housing
opportunities will need to be available for this sector of the workforce. Existing housing
units are scattered throughout the island and are typically indistinguishable from
surrounding market-rate properties. As the need for affordable housing increases in the
54
53 As of February 13, 2008, the Department of Housing and Urban Development (HUD)
established a median household income of $81,900 for Nantucket County.
54 Based on the decennial census (currently: 2000), and as inventoried by the Massachusetts
Department of Housing and Community Development (DHCD).
55 48 units as of September 2008
56 Prepared by John Ryan, 2002, for the Nantucket Sustainable Development Corporation in
cooperation with the Nantucket Resident Housing Partnership
future, the majority of it will need to be developed in the TOD, where goods and services
are in close proximity, public transportation is accessible, and infrastructure, such as
sidewalks, bike paths, sewer, and water, is available.
Massachusetts General Law Chapter 40B, requires that 10% of the year-round housing
stock in each city or town be affordable to households earning income less than 80% of
the median for the area.53 The maximum household income, as well as the maximum
sales price or monthly rental amount, are set by the Department of Housing and
Community Development (DHCD). Currently, Nantucket is deficient in that only 3% of
the year-round housing stock is classified as affordable.54 Units owned and operated by
the Nantucket Housing Authority (NHA) comprise most of that percentage.55 Additional
units have been constructed within 40B developments, elder housing facilities, or
through the Habitat for Humanity program.
The Nantucket Community Housing Action Plan, prepared in 2002,56 determined that
roughly 400 island renters who have lived on Nantucket for at least five years, earn at
least $50,000 a year, and who aspire to purchase a home, are left with the option to
continue renting or leave the island. Roughly 12% of renters at that time were paying at
least 35% of their gross income for rent, had no lease or year-round housing options,
and had to relocate each spring and fall (known as the “Nantucket Shuffle”) at least once
in the three years prior to the study. A conservative goal of 200 new units of permanently
affordable, year-round rental housing was established, set to be reached, and re-
evaluated by 2010. The focus addressed four key areas: fifty employer-provided units for
year ‘round employees; fifty units for Town employees and other island residents on
Housing Authority-owned and Town-owned properties; fifty units created through zoning
and enforcement incentives; and fifty units of mixed income housing, utilizing the U.S.
Treasury’s Housing Tax Credit Program.
2002-2010 Housing Assessment for Permanently Affordable Rentals
Additional
Housing
Units
Needed
How are the units to be provided?
Housing
Units
Provided
50 By Employers 0
50 By Town of Nantucket 0
50 By the Private Sector Through Zoning Incentives 3
50 Through the U.S. Treasury's Housing Tax Credit Program 0
Two years away from this deadline, Nantucket has made some progress, but will most
likely miss the goal set for 2010. Housing Nantucket has created twenty-four rentals
since 2002 and has five more in the planning/permitting phase. Another local non-profit,
Nantucket Education Trust, has created three affordable units for teachers. An additional
55
57 Nantucket Housing Needs Update (draft), by John Ryan, for BOS workshop, 8.12.08, Appendix
G
58 Ch. 139-7G
59 Massachusetts General Law Ch. 301, The Acts of 2002
60 Ch. 139-7A
61 Kelly Reinsmith — Housing Demographics, page 15, “Affordable Housing Units Built After 2002,”
Appendix H
forty-seven affordable rental units are in the pre-development, gathering funding, or
conceptual stage.57
It is imperative that the Town continues to promote the provision of affordable housing,
preferably permanently restricted, for rental or purchase, in order to increase the
affordable housing stock to meet state guidelines, and to meet the local need for such
housing.
AFFORDABLE HOUSING – MODERATE INCOME
At the 2002 Annual Town Meeting, Nantucket approved a home rule petition allowing the
creation of moderate income home ownership opportunities for households earning less
than 150% of the median income.58 Although these units do not meet State or Federal
affordability guidelines, the covenant program was an effort to address a local need by
decreasing the housing deficit for the year-round community. Later that year, the
legislation was passed confirming the housing crisis on Nantucket at the state level.59
The intent of the covenant program, known as the Nantucket Housing Needs Covenant
(NHNC), was to create ownership of multiple dwellings on the same lot. Since the
Nantucket Zoning Bylaw allows two dwelling units by-right on one lot,60 the concept was
that one dwelling would be placed under the covenant in perpetuity, and the other would
remain at market rate. The result of this is that most of the NHNC housing created is of a
detached, single-family type arrangement. The re-sale of any dwellings with the NHNC
must be to a qualifying buyer and would have to be within the sale price requirements set
by Housing Nantucket.
Although the NHNC generated approximately thirty-seven moderately priced units
between 2002 and 2008, the anticipated level of production has not been achieved.
Covenant dwellings are subject to restrictions. Some of these restrictions include owner
occupancy for at least ten months of each year, a prohibition against renting, and a
maximum sales price. Also, since covenant units are included in a condominium
association, monthly fees may apply in addition to the cost of the mortgage payment.61
In an effort to increase the supply of moderate income housing, voters at the 2008
Annual Town Meeting voted to approve Article 57. Article 57 modified the definition of
affordable housing in the Zoning Bylaw to include moderate income housing. This
change allowed density bonuses in subdivisions to apply to households earning up to
150% (an increase from 80%) of median income, reflecting the fact that the island’s need
for low-cost housing reaches far into what would normally be considered middle and
upper class incomes.
EMPLOYEE HOUSING
56
62 Under Ch. 139-7D of the Zoning Bylaw. Five or more people are permitted in the dwelling.
63 Chapter 139-7C
Year-round and seasonal employee housing is an on-going challenge for the local
businesses and the community. Two options for the voluntary creation of dormitory-style
employee housing are available in the Zoning Bylaw. The Neighborhood Employee
Housing Overlay District (NEHOD), co-terminus with the TOD, allows, through special
permit, the construction of two separate structures, housing up to eighteen (18) persons
per lot. Employer Dormitories are allowed through special permit in the COD on, or
adjacent to, properties containing existing commercial uses,62 provided that the
occupancy is limited solely to employees of the property owner.
Major Commercial Development (MCD) projects are required to provide one
“inclusionary” housing unit for each 4,000 square feet of commercial use. Inclusionary
units may be located either on or off-site; however, they must be secured by a covenant
limiting them to employee use only, with the Planning Board granted the right to enforce
the covenant. Due to the out-dated restrictions in the Zoning Bylaw involving inclusionary
housing units, the Planning Board regularly waives the requirement in lieu of the
provision of more flexible employee housing options, the specifics of which differ from
project to project. The language in the Zoning Bylaw needs to be updated to reflect
current practices, which ultimately achieve the same result as intended by the Bylaw.
OTHER HOUSING
Accessory apartments are allowed by-right in all zoning districts, but the Bylaw
requirements are very restrictive, and sometimes eliminate the possibility of a second
dwelling on the property. In addition, accessory apartments are limited to year-round
occupancy; therefore, they do not contribute to the needs of the seasonal workforce.63
The Multi-Family Overlay District (MFOD) allows, by special permit, one dwelling unit for
each 2,500 square feet of lot area, without restrictions on units being attached or
detached. The units may be owned as condominiums, and must be restricted to either
year-round or peak seasonal employee occupancy. Although these units are not subject
to any income or re-sale requirements like the affordable and moderate income units, the
nature and location of these units keep the prices within reach of first time homebuyers.
This option has been very successful in creating year-round housing at attainable prices.
Since 2000, 135 units have been permitted under this program.
Currently, housing for the elderly, and those with special needs, is allowed in the Limited
Commercial (LC) zoning district, as well as special zoning districts to accommodate
existing and planned facilities. In the past, the island has relied on creating special zones
for elderly housing, but options to allow additional facilities in other zoning districts need
to be explored, and spot zones must be eliminated. The Our Island Home (OIH),
Academy Hill (AH), and Assisted/Independent Living Community (ALC) districts contain
Landmark House, Our Island Home, Academy Hill, and Sherburne Commons. One
additional facility, The Homestead, is located in the ROH zone and is legally
nonconforming. These facilities provide a total of (25) affordable units. The town must
continue to assess the needs of this portion of the community and determine future
requirements by partnering with agencies that deal with housing needs directly.
57
CHAPTER 4: ECONOMIC DEVELOPMENT
Nantucket has a diverse economy supported by a seasonal and year-round workforce.
Since Nantucket is a tourist destination with many seasonal homeowners and visitors,
employment opportunities also change with the seasons. The peak summer season
represents the height of employment, as workers from winter resort areas and other
countries, currently the Caribbean, South America and Eastern Europe, arrive to
supplement the island-based workforce threefold. The impact of limitations of the H2B
visas has caused interruptions in the normal flow of labor, and this ongoing situation will
have repercussions on Nantucket, as evidenced by the need for seasonal employment
as shown in Figure 18 below:
Figure 18. Distribution of Jobs (Massachusetts of Division of Employment and Training, 2002)
Historically, the availability of jobs both year-round and seasonally has kept the
unemployment rate for Nantucket below the state averages, as shown in Figure 19.
Figure 19. Unemployment Trends (Massachusetts Division of Employment and Training, 2002)
58
64 MA Bureau of Statistics and US Bureau of Statistics
Although this chart ends with 2001, data suggests that the trend has remained constant.
The estimated 2007 unemployment rate for Nantucket was 2.65% and 4.64% for
Massachusetts.64
The availability of jobs on Nantucket has made it attractive to workers, and many sectors
have remained steady, expanded, or new businesses have been introduced at levels
which exceed those same types of businesses failing, as shown in Figure 20.
0 10 20 30 40 50 60
Construction
Retail Trade
Professional, Scientific, and Technical
Services
Other Services (except Public
Administration)
Arts, Entertainment, and Recreation
Accommodation and Food Services
Real Estate and Rental and Leasing
Administrative and Support and Waste
Management and Remediation Services
Health Care and Social Assistance
Finance and Insurance
Wholesale Trade
Manufacturing
Information
Transportation and Warehousing
Educational Services
Mining
Utilities
Management of Companies and
Enterprises
Forestry, Fishing, Hunting, and
Agriculture Support
Unclassified
Constants Expansions Contractions Births Deaths
Nantucket Establishment Births, Deaths, Expansions,
Contractions, and Constants: 2004-2005
Figure 20. Nantucket Establishment Trends (US Census)
59
65 Warrant Article 42 ATM 2005
66 Warrant Article 29, 2003 ATM
Concentrations of retail businesses, restaurants, offices, and service establishments are
mainly within the downtown and the mid-island area. Many year-round commercial
establishments such as gas stations, hardware stores, and the largest grocery stores
have migrated away from the downtown to the mid-island area. Industrial uses are
concentrated near the airport, and near Old South Road and Lovers Lane, with scattered
sites in areas where residential uses have developed around them. Various businesses
are conducted from homes, in concentrations that are largely found at the edge of
existing commercial nodes, along busier roads, or in long established but nonconforming
locations in residential areas.
The downtown core of Nantucket is the symbolic center of the island, and commercial
uses line cobblestoned Main Street and several blocks extending around this main spine.
Traditional New England uses such as churches, municipal buildings, a post office, and
museums draw potential customers, as well as the businesses themselves. Second and
third floors often provided apartments for employees and proprietors, reducing the need
for vehicles and providing potential customers. The downtown core, built before zoning
was developed, cannot meet many standards, specifically parking, height, and loading
zone standards that are inappropriate for the area. Rising rental costs have changed the
year-round economy in the downtown. Concerns about the closing of long-established
businesses, which are replaced by seasonally operated ones, have been expressed.
Traffic congestion is a part of any summer resort area, and must be managed so as not
to impact viability. Dissatisfaction with parking and traffic congestion has been a growing
concern, and despite introduction and improvements to public transportation, more
aggressive enforcement, traffic management strategies, and physical improvements, the
supply of parking has not increased since the late 1980s, when the area used for
municipal parking was developed. There is an area, bounded by Commercial Street,
New Whale Street, Main Street, and Candle Street, which contains land formerly used as
an electrical generation facility, parking lot, and tank farm, that could be redeveloped in a
way that would include parking. Increasing the supply of parking, matched with other
management of parking strategies, needs to continue to be developed.
To preserve the historic character of Main Street, a warrant article was passed at the
2005 Annual Town Meeting that limited formula businesses (more commonly known as
chain stores) in the downtown.65 This was an initiative to keep the downtown distinctive
from other tourist destinations, and to maintain the sense of place that Nantucket is
known for.
Many year-round businesses are located in the mid-island area, and the future trend may
be that more business owners choose to locate there. The area was developed more
intensively beginning in the 1970s, and is valued for its function, but not for its overall
appearance, which is dominated by parking lots and scattered, unconnected character.
The Mid-Island Area Plan, approved by the NP&EDC on March 3, 2003 and later
adopted as an overlay district in the zoning bylaw,66 recommends revising the area to a
more attractive commercial district, employing new-urbanist and smart-growth principles.
Public infrastructure improvements, including the roundabout at Sparks Avenue and
Pleasant Street, expanded sidewalks, and street tree plantings, are all examples of
public investments in the area that need to continue.
60
67 Zoning Bylaw section 139-7A(4)
68 Warrant Article 2, 2006 STM
Other nodes of mixed use commercial development exist in the TOD, along Old South
Road at Amelia Dive, Lovers Lane, and between Macy’s Lane to Nobadeer Farm Road
to Sun Island Road, and at Bartlett and Surfside Roads (see Figure 15 in Land Use).
Scattered areas exist on Fairgrounds Road, near the hospital, and mixed among certain
neighborhoods, as pre-existing non-conforming or illegal uses. In the COD home-based
enterprises exist, as well as farms, and small village center establishments in ’Sconset,
Monomoy, and Madaket. Mixed uses are encouraged in Nantucket, and neighborhood
centers are being created throughout the island within close proximity to dense
residential areas. Home-based businesses, identified in the Nantucket Zoning Bylaw as
“home occupations,”67 are frequently found on Nantucket and are allowed by-right in all
zoning districts, although based on a “one size fits all” standard that may not be
appropriate for all districts. Land values have reached a level where many business
owners cannot afford a separate location either to rent or to purchase. Since the building
trades comprise a significant portion of the year-round workforce, many small scale
workshops are scattered throughout the island as “cottage industry” type businesses.
Industrial uses have clustered around the east and west border of the airport, which is
highly compatible with the impacts. An industrial concentration exists in an area south of
Old South Road and east of Lovers Lane, and in scattered locations on Miacomet
Avenue, Hummock Pond Road, and South Shore Road.
Until recently, no distinctly commercial zoning districts existed. All commercial districts
allowed a mix of commercial and residential uses, with no apparent focus on either type.
As land values appreciated over time, residential uses began to occupy these areas, and
available land appropriate for commercial use became increasingly rare. It is imperative
that the island accommodate the businesses that sustain daily life here, such as
warehousing, fuel storage, and other heavy commercial uses, which are not compatible
with residential uses. Beginning at the 2006 Special Town Meeting new zoning districts
were introduced to reinforce this type of development pattern, streamline the permitting
process, allow more businesses by-right in appropriate locations, and decrease the
uncertainty of past permitting practices.68 Future areas for commercial use need to be
identified and mapped with the newly created CN, CTEC, and CI zoning districts. In
2008, rezonings and authority granted to the Board of Selectmen allowed the
development of additional industrial development adjacent to the existing Bunker Road
area, on the east side of the airport.
61
69 Monitoring the Nantucket Economy, An Update to the 1993 Economic Base Study, June 2002,
Sponsored by the NP&EDC and the Nantucket Chamber of Commerce, Prepared by RKG
Associates, Inc.
WORKFORCE AND EMPLOYMENT DATA
The most current available economic data for Nantucket is the Woods & Pool Economic
Base Study from 2002.69 Although new data was collected in 2007, it will not be
released until 2009. An updated study should be completed at that time.
The 2002 economic statistics indicate that services and retail are the island’s largest
employers, as seen in the figure below.
Figure 21. Local Employment Trends (Nantucket Economic Base Study, 2002)
Seventy-seven percent (77%) of all future job growth is projected for retail and service
industries, indicating a trend toward seasonal businesses. Complimenting that trend is
the influx of a summer labor force. The chart below indicates that the workforce is
consistently at its peak during the month of August, and its low during February.
62
70 Question 4, 531of 1097 respondents
Figure 22. Labor Force Trends (Massachusetts Division of Employment and Training, 2002)
This fluctuation of the labor force suggests that seasonal jobs are either held by people
who do not live on Nantucket, or by Nantucket residents who enter and leave the
workforce seasonally. What is important to note is that although the highest amount of
future job growth is in the service and retail sectors, the projected workforce need is
consistent between seasons.
Figure 23. Employment Projection (Regional Transportation Plan, 2007)
For year-round residents, the most likely future job growth is in the construction industry,
however, this projected trend appears to begin to level out over time, as shown in Figure
21. Much of the construction related activity revolves around the second/vacation home
market, and as new starts in construction slow due to inevitable build-out, residents of
Nantucket will need to seek other sources for year-round employment.
In the 2005 survey attached to the Annual Town Census, 48% of respondents felt that
both year-round and seasonal employment should be expanded.70 This is particularly
important given the current economic trend of steady growth in the seasonal industry
63
71 www.city-data.com
72 Ibid
sectors, but not in year-round sectors. In 2006, 14% of Nantucket males named
carpentry as their occupation, making it the most common.71 The most common industry
for males was construction, with 32% employed in that sector. Females were mostly
employed in administrative and educational occupations, which are projected to be
stable over time.
Perhaps the most threatening trend to the year-round workforce is commuters from the
mainland, arriving by plane or ferry on a daily basis. This workforce is not specific to any
one employment sector, although perhaps more concentrated in some, and includes
trades people, government employees, skilled professionals such as engineers, and
retail workers. Wages on Nantucket are higher than in nearby Barnstable County and
other nearby regions, making commuting attractive to those who live off-island. However,
for those who live here, the cost of living, excluding housing, is about 130% higher than
the U.S. average,72 making it common for year-round residents to supplement their
income, sometimes with secondary employment. This makes the development of
affordable housing of critical importance for encouraging social and economic stability.
64
73 “What Makes an Island? A Collector’s Definition,” by Samuel A Schreiner, Jr., New York Times,
February 22, 1981
74 Town of Nantucket Beach Management Plan: June 1, 2005
CHAPTER 5: NATURAL AND CULTURAL RESOURCES
As an island, Nantucket presents many unique features, both in the realm of its historic
and cultural context, and its natural physical environment. Living separate from the
mainland creates a lifestyle that is both independent and closely connected. Islanders
enjoy their solitude in the winter, and adjust to being crowded in the summer. They
realize that life here is different from other places. In an essay published in the New York
Times in 1981, author Samuel A Schreiner, Jr. discusses the nature of a true island.73 He
explains that there are inconveniences, and shortages, whether it’s one’s favorite brand
of a product, or general diversions. He writes:
“In most cases, though, it is worth ignoring the discomforts. Once you demonstrate that
you can roll with the punches, true islanders will take you to their hearts.”
In his informal research, he seems to have come to an important conclusion: to
understand the culture of a true island, one must appreciate and adapt to its eccentric
rhythms and methods, rather than expecting it to adapt to you. As island life has evolved
since the first settlers of European descent arrived on Nantucket in 1659, its stories and
traditions have long held the keys to its survival. As we move into the future, residents
should remember that the success of the community lies in its members’ ability to adapt
to island life, rather than to expect it to eventually conform with the pace and
“convenience” of the mainland. In a world that moves towards standardization, a spirit
here resists that, and strives to retain the things that make it special.
Nantucket contains an abundant amount of obvious natural, historic, and cultural
resources. Its unique environment hosts rare ecosystems such as sand plain grasslands,
and threatened species, like the Northern Harrier. It is rich in history as one of the
country’s first economic centers, during the era of the whaling industry. Nantucket
residents have long sought methods to protect all of the island’s defining characteristics,
making preservation of various kinds a priority, through both public and private efforts.
NATURAL RESOURCES
Nantucket’s coastal areas are one of its most important features, and the town has made
access to those areas a priority for many years. Although the majority of coastal lands
are in private ownership, traditionally access to the shoreline has been open to all. As
landowners threatened to make access less available, the One Big Beach Program for
public access easements was conceived, and a beach management plan now
encompasses the entire island.74 Balancing use with preservation is an ongoing
challenge for these dynamic areas, as erosion and species protection must be
considered. In addition, Nantucket Harbor plays an important role, as both a natural and
cultural feature. It provides ferry access to the mainland, shellfish beds, and a protected
space for boating and other water-sports.
The island’s Great Ponds are an important resource as well. Nantucket has
environmental jurisdiction over these ponds, including Sesachacha, Miacomet, and
Hummock Pond, which are opened to the ocean for flushing and draining when
determined appropriate. The Massachusetts Department of Conservation and
Recreation (formerly DEM) has designated at least five areas of Nantucket County as
65
75 Prepared by Jeff Thibodeau, Helios Land Design
scenic landscapes, all shown on Figure 24:
▪Coatue and parts of Great Point
▪The Middle Moors and eastward to the ocean, including Sesachacha Pond
and Sankaty
Golf Club
▪Eel Point and eastward to Dionis
▪Smith’s Point and Esthers Island
▪Tuckernuck and Muskeget Islands
While largely in private control, these areas play a key role in preserving Nantucket’s
character, providing habitat for many stressed and endangered species. An inventory of
these areas, habitats, and species are well documented in the Town’s Open Space and
Recreation Plan.75
By both private and public efforts, natural resources on Nantucket have benefited from a
high level of motivation in regards to preservation. The Town must continue to maintain
this effort, through its Conservation Commission and the Nantucket Islands Land Bank,
and partnerships with private conservation agencies and landowners.
In addition, wind is an abundant resource, historically put to use to mill the island’s corn,
and power its whale ships. In modern times it has remained largely untapped. With new
technology available, and conventional energy sources reaching astronomical costs,
individual property owners have begun to explore the option of wind turbines on their
land, as well as solar systems. Adaptability must become a component in the Historic
District Commission’s review of such proposals, especially outside of its Old Historic
(OHD & SOHD) districts. Other renewable resources such as wave and tidal action
should be investigated and considered.
Figure 24. Scenic Vistas (Open Space Plan, 2007)
66
76 Appendix I: Nantucket Historical Association Properties (p.151, Open Space & Rec. Plan)
77 http://www.nationalregisterofhistoricplaces.com/MA/Nantucket/state.html
78 p. 154, Open Space & Recreation Plan
HISTORIC RESOURCES
Nantucket is a community rich in history, which has been physically well preserved by
means of its isolation, and its value as an enhancement to its tourist industry. The entire
island has been designated as a Historic District by the Commonwealth, and was named
a Historic Landmark in 1966 by the Secretary of the Interior. The whaling industry, which
put the island on the world map as an economic center during the nineteenth century,
has been well documented by the Nantucket Historical Association (Historical
Association). The Historical Association, a private non-profit entity, operates the Whaling
Museum downtown, and owns numerous historic properties on the island, including a
research library, and the Old Mill.76 The Town’s library, the Atheneum, is another
repository of local history. Cultural events are held there throughout the year. Other
private, non-profit organizations, such as the Lifesaving Museum and the African
Meeting House, preserve, document, and present specific areas of Nantucket’s
fascinating history.
Properties listed on the State Register of Historic Places include the three lighthouses on
Nantucket, Brant Point Light Station, Nantucket [Great Point] Light, and Sankaty Head
Light, as well as Friends Meeting House, Hadwen House, Nathaniel Macy House,
Thomas Macy Warehouse, and the Old Mill. The National Register lists Brant Point,
Great Point, and Sankaty Lights, along with the Jethro Coffin House.77
There are many historical burial grounds identified on the island, including Founders
Cemetery, Old North Cemetery, New North Cemetery, Mill Hill Cemetery, Prospect Hill
Cemetery, St. Mary’s Cemetery, Edward Lewis Unitarian Cemetery, the Native American
Burying Ground, the Settlers Burying Ground, Quaker Cemetery, two Polpis cemeteries,
and the Colored Cemetery. Archaeological sites include a former Native American
village and burial ground near Miacomet, and various unmarked Native American sites
scattered along the southeastern shore, Polpis Harbor, and between Gibbs Pond and
Siasconset. Sites associated with European settlers are located near Capaum, Maxcy,
and Hummock Ponds, including home sites of the original island settlement, as well as
shipwrecks in coastal waters. The Town does not have any official, protective regulations
in place for these resources.78 The Town must continue its own efforts to document and
preserve its public records in various departments, providing research materials and
archives that are valuable now, and into the future.
As a designated Historic District, instruments for preservation are firmly in place, but as
the island’s population continues to increase, finding a balance between preservation
and modern convenience and innovation will inevitably present challenges to the Town.
In 2000, the National Trust for Historic Preservation listed Nantucket on its “Top Ten” list
of threatened historic resources. According to longtime Historic District Commission and
Planning Board member John McLaughlin, the only way to preserve something is to
“leave it alone and let it grow old gracefully, with proper maintenance along the way.”
The Commission’s official guide, Building With Nantucket in Mind, reiterates this thought:
“… [P]reservation on Nantucket is, simply, a way of life. … Preservation policy on
Nantucket is grounded in a policy of minimal intervention. Intervention goes beyond the
obvious of avoiding architectural irresponsibility, be it in style or in detail. It touches on
67
79 Building With Nantucket in Mind, page 14
80 Master Plan Survey, Question 5: Natural & Cultural Resources, distributed with the 2006
Annual Town Census
the broader issues of respecting the physical, cultural and metaphysical fabric of the
island as a whole, in keeping with its designation of landmark in toto.”79
CULTURAL RESOURCES
Nantucket has long been a home to artists, writers, actors, musicians, and craftspeople.
Support for the arts of all kinds is a strong thread in the fabric of the island, and should
continue on many levels, through educational opportunities, theatrical groups, artists’
associations, visiting performers, etc. The Town recognizes and supports the island’s
arts and cultural community as critical to the island’s economic and spiritual well-being,
and supports public and private efforts when feasible and appropriate. The arts on
Nantucket increase tourism and is a key component of downtown revitalization and
sustainability. The Town must recognize the arts as a valuable component to island life,
and support public and private efforts when feasible and appropriate.
In the survey conducted by the Planning Office in preparation for this Plan, residents
were asked if the Town should be involved in the creation of a Community Arts Center.80
Seventy-four percent saw some involvement for the Town, and the majority (28%) felt
that the Town should provide incentives such as zoning changes or tax relief for private
developers to create a facility. The overall majority did support providing land for such a
venture, and several sites, including the 2 Fairgrounds Road site, the Washington Street
municipal parking lot, and others, have been considered. Anticipated restoration of the
Dreamland Theatre is part of the solution, but more may need to be done.
The importance of a gathering space for residents must be stressed here. Historically a
diverse population, residents have long sought ways to come together, whether it is
downtown on Main Street, or at the Dreamland Theatre, or at the High School for Town
Meeting. Currently, the Tom Nevers Recreational Facility accommodates events such as
the carnival, the demolition derby, and the County Fair. These events offer opportunities
for the community to gather and interact, and contribute to a healthy island society,
encompassing citizens of all ages and backgrounds. The Town needs to make gathering
easier, by retaining and creating places of public assembly. It must have appropriate
venues for cultural events, making sure that these needs are not driven out by economic
and practical factors. Maintaining the downtown area as the heart and soul of the
community is imperative.
The Town will consider the following possible strategies for the creation of a Community
Arts Center in the future:
▪Provide land for an arts center at a reduced cost or no cost
▪Provide economic incentives for the private sector to create a Community Arts
Center
▪Consider a public/private partnership for the formation of a Community Arts
Center
▪Reserve sufficient space for a Community Arts Center in any plan for the
development of any Town owned land, including 2 Fairgrounds Road, that may
be appropriate for a Community Arts Center
Over the past twenty years, the year-round population has increased dramatically,
68
changing Nantucket in many ways, and expanding its cultural diversity. Through
education and understanding of the island’s past, its success in the future is more greatly
assured.
69
81 Town of Nantucket 2007 Open Space and Recreation Plan, revised August 4, 2008 (Appendix
J)
82 Question 6, 2006 Annual Town Census Survey and Non-Binding Ballot Question 2, 2006
Annual Town Election
CHAPTER 6: OPEN SPACE & RECREATION
Nantucket is committed to protecting its native ecosystems, biodiversity, and to
maintaining the quality of the island’s water bodies. In addition, the community must
strive to develop a more proactive approach to preserving important open-space related
historical resources, and its natural landscapes. The Open Space and Recreation Plan
(OSRP), prepared and submitted to the state in 2007,81 establishes an inventory of the
Town’s open space properties and it municipal recreational facilities. The goals and
objectives described in the Plan are a summary of the OSRP, which is to be updated
every five years, and made a part hereof in Appendix J.
Figure 25. Designated open space
POLICY, PRIORITY AND MANAGEMENT
The community should continue its efforts to acquire and manage open space for
preservation of natural and wildlife habitats, passive and active recreation, and a clean
and plentiful water supply. As less developable land is available, the focus for open
space should transition from a broad acquisition strategy to a focus on strategic
acquisitions and management. Accomplishing these goals, while balancing practical
needs for growth, is essential. The community clearly supports ongoing acquisition of
land as evidenced in both the non-binding ballot question and questionnaire, with 70%
supporting additional open space acquisition.82
The goals will be accomplished by maintaining a priority parcel acquisition list, currently
administered by the Nantucket Islands Land Bank, and by continuing to seek funds to
70
83Revised Nantucket & Madaket Harbors Action Plan, May 8, 2007
purchase key open space parcels. The town must encourage the use of tools such as
conservation restrictions, tax abatements, gifts, and zoning to aid its mission. “Un-
development” should be employed to recover open space or recreation parcels in
strategic locations, such as the waterfront. Developers and private homeowners should
be provided with incentives to incorporate land protection strategies into their projects,
such as by-right cluster subdivisions in the COD.
WATER RESOURCES
Enhanced use and protection of the environmental health of its surface water resources:
the beaches, harbors, and great ponds, are essential. To this end, the Harbor
Management Plan83 must be implemented and a Coastal Management Plan should be
created and implemented in the next five years. Regulations governing development and
prioritization of the acquisitions of land within the 100-year coastal flood plain and in
buffers to other wetland resource areas where necessary should be strengthened. The
Town should improve pedestrian access, public transportation, and parking near the
shore, as well as provide public restroom facilities where needed.
Present and future groundwater supply can be protected by including future well-field
areas in open space protection efforts, through zoning, and acquisition of fee or lesser
interests. The town must continue to improve waste water disposal methods to protect
water quality for many reasons, including open space and recreational considerations.
COORDINATED EFFORT
Open space and recreational needs must be coordinated to the benefit of each. This is
facilitated through the implementation and updating of the OSRP every five years in
accordance with state requirements. A bi-annual (every 2 years) meeting should be
convened by the Board of Selectmen, and should include departments such as the
Planning Office, Conservation Commission, Nantucket Islands Land Bank, Parks &
Recreation, and other relevant town agencies to identify needs, establish budgets, and
coordinate cooperative efforts. Inventory lists, prepared in accordance with the OSRP,
must be maintained, updated, and mapped. Additional coordination and cooperation
between various non-profit and private groups on the island involved in conservation
efforts, such as The Nantucket Conservation Foundation (NCF), the Nantucket Land
Council, The Massachusetts Audubon Society, and others, should be encouraged.
PRESERVATION AND EDUCATION
Unique, fragile, natural, and cultural landscapes must be identified, protected and
enhanced, and characteristics such as scenic beauty, historic significance, and rare
habitats included. When possible, changes in existing development should strive to
enhance contributing natural features, critical wildlife and plant habitat, water resources,
historic or cultural landscapes, scenic roads and views, contiguous forest, and significant
landforms, where applicable. In addition, proposed development should be designed to
preserve such features. Historical and cultural landscapes must be identified and defined
so the public understands their value to the island, and activities such as farming, which
has played such an important historic role, should be encouraged. The town should
create incentives for agricultural activities, enhancing locally-grown food sources, and
long-held traditions, such as county fairs, farm stands, and markets, to continue this
important part of the island’s heritage.
ACCESS AND RECREATION
71
Continuing to acquire land, maintain facilities, and expand recreational opportunities and
access throughout the island is important, to ensure that the needs of varied user groups
are met to the largest extent possible. This goal can be met by designating the use of
conservation and recreation lands as either active or passive, based on their suitability.
Regulations pertaining to such properties must be established, posted, and enforced.
Municipal agencies should focus more intently on improving availability and access to
recreational resources. Public recreational facilities and open space areas should be
designed for year-round use and, like the Tom Nevers facility, be multi-use where
appropriate. Areas that house more than one facility, such as the ice rink and skate park,
could be linked by walking paths, trails, sidewalks, bike paths, and parks.
It is important to assess all existing facilities and to develop and fund programs for
repairs, improvements, and rehabilitation to meet current needs and standards. The town
must strive to meet national standards where appropriate. The Parks & Recreation
Department, in concert with other town agencies, should continue to promote public use
and to inform the public on the availability of programs, facilities, and services. Open
space and recreational facilities should be made accessible to handicapped persons,
and program opportunities should be available to special populations when possible and
practical. Special attention should be given to make marine landings more accessible for
all.
Town agencies must coordinate to ensure that public facilities meet the needs of local
community groups, facilitate non-profit social gatherings and events, and enhance
signage and maintenance of recreational areas. Public boat launching facilities should
be provided on all major waterways, such as Polpis, Madaket, Warrens Landing, and
Nantucket Harbor, to serve both residents and visitors. The development of contiguous,
trans-island walking trail networks, focusing at first on the greenbelt and harbor, and
acquisition of land to create smaller village and neighborhood open spaces, such as
pocket parks, playgrounds, pedestrian gathering areas, and community/neighborhood
gardens, should continue.
INVENTORY AND STEWARDSHIP
All public properties dedicated to open space should be designed and managed for their
intended public benefit. The town should review its inventory of land, and evaluate
whether the properties are appropriate for open space or other purposes.
Encroachments onto open space and recreational land should be eliminated.
Management plans should be developed for specific properties to guide decisions for the
future, which require protection and sustainability of natural resources and processes. By
cultivating increased coordination and cooperation between public and private land
conservation groups, the island will maximize the successful implementation of its land
acquisition, planning, and management efforts, and will be able to coordinate trails and
contiguous habitat.
Nantucket must work diligently to protect its wildlife population and habitat by identifying
and preserving landscapes that foster species diversity, and link to known wildlife
resource areas. It should continue the prescribed burn plan for habitat management on
conservation properties, and conduct an on-going, island-wide inventory and
prioritization of wildlife habitats and species.
72
CHAPTER 7: SERVICES AND FACILITIES
Town government, in general, is service based and the Town of Nantucket offers a
variety of services and facilities to the public. However, services provided that directly
benefit the public, such as education and public safety, are more widely recognized than
administrative services. As a Town, it is often difficult to provide the services needed for
a population that changes so dramatically between seasons, and a seasonal workforce
is necessary to provide the level of service that is expected.
In 2006 a questionnaire prepared by the Planning Office and distributed with the Annual
Town Census, one question regarding services and facilities was posed:
What level of monetary investment should the Town make in the community’s
physical infrastructure?
The respondents, which totaled 1,094 in number, were given five sub-categories and
answered as follows:
Invest
More
Invest
Same
Invest
Less
Bike Path 54% (597)40% (446)6% (68)
Roads 39% (422)54% (593)7% (78)
Schools 44% (481)47% (518)8% (92)
Parks/Playgroun
ds 34% (370)54% (592)11% (125)
Police/Fire 26% (283)61% (660)13% (143)
In all categories, the respondents voted to “Invest Same,” except regarding bike paths
were the majority voted to “Invest More.” A challenge for the Town in future years will be
to provide the level of services necessary to meet the needs and expectations of the
year-round and seasonal residents, keeping within a relatively static budget, or seek to
raise additional funds.
The Fiscal Year (FY) 2009 operating budget for the Town is $75,126,309, excluding the
five (5) enterprise funds which include: Siasconset Water, Wannacomet Water, Airport,
Sewer, and Solid Waste. The largest portion of the budget, 31.9%, is dedicated to the
schools, as shown below.
73
84 Nantucket Tax Assessor
85 Nantucket Tax Assessor
86 2007 Annual Town Report, page 31
87 Nantucket Tax Assessor. Average is for properties with year-round residential exemption
88 Nantucket Tax Assessor. Average is for properties with year-round residential exemption
Town of Nantucket Total Operating Budget FY 2009
Contractural
Obligations
0.36%
Debt Service
13.51%
Marine and Coastal
Resources
1.11%
Education
31.90%
Human Services
8.03%
Maintence/DPW
4.84%
Safety and Protection
11.45%
General Government
9.68%
Assessments
5.32%Insurances
13.80%
Figure 26. Town Operating Budget, FY 2008
The total amount of taxable property on Nantucket for FY 2007 was $20,383,711,813.
Eighty-two percent (82%) ($16,793,422,200) of that amount consists of residential
dwelling units, with single-family dwelling units accounting for about half of the total
amount.84 The average assessed value for a year-round residence (this includes any
type of residential property: single-family, multiple dwellings, condominiums, duplexes,
etc.) in FY 2009 was $1,396,522.85 With the residential exemption, the tax bill for the
same would be $2,818.86
Town Tax rate Average Bill Average Value
Nantucket $2.49 $2578.28 87 $1,309,477 88
Edgartown $2.85 $3,141 $1,102,245
Chatham $3.49 $3,118 $893,429
Truro $4.15 $3,386 $815,948
Provincetown $4.96 $4,254 $857,570
Nahunt $7.11 $4,394 $617,949
Marblehead $7.76 $5,915 $762,250
Ipswich $8.32 $4,462 $536,327
Hingham $9.00 $6,197 $688,592
Newburyport $10.09 $4,925 $488,111
Cohasset $10.50 $8,664 $825,126
Figure 27. Residential Tax Rate Comparison (MA Department of Revenue)
74
89 Massachusetts Department of Revenue, Fiscal Year 2007 Tax Rates
90 2007 Annual Town Report, page 32
As indicated in Figures 28 and 29 the tax rates have been continuously decreasing since
the mid-1990’s. Of the 351 municipalities in MA, the 2007 residential tax rate for
Nantucket is fourth lowest in the state and the commercial tax rate is eleventh lowest.89
The average residential tax rate for MA is $10.41.90 The average bill for municipalities
that do not have a residential exemption (336 of 351 municipalities) is $4,110.
History of Nantucket Residential Tax Rate
$0.00
$2.00
$4.00
$6.00
$8.00
$10.00
1981198219831984198519861987198819891990199119921993199419951996199719981999200020012002200320042005200620072008YearRate per $1000Figure 28. Residential Tax Rate (Nantucket Assessor's Office)
75
History of Nantucket Commercial Tax Rate
$0.00
$2.00
$4.00
$6.00
$8.00
$10.00
$12.00
$14.00
1981198219831984198519861987198819891990199119921993199419951996199719981999200020012002200320042005200620072008YearRate per $1000Figure 29. Commercial Tax Rate (Nantucket Assessor's Office)
GENERAL TOWN ADMINISTRATION
The administrative offices of the Town have been located in the downtown core, at 16
Broad Street in the Town and County building constructed in 1965. However, as the
Town services have grown, other facilities have been created to accommodate the need
for more administrative staff. The main, two story, brick building contains the
Selectmen’s administrative staff, Town Clerk, Registry of Deeds (County), Tax Assessor,
and Tax Collector. The second floor has State offices including Registry of Motor
Vehicles, Probate and Family Court, Superior Court, District Court, Cape and Islands
District Attorney, and the Sherriff’s Office. The Selectmen meet in the courtroom on the
second floor.
Within the same block, bounded by Federal, Broad, South Water, and East Chestnut
Streets, are three other freestanding structures as follows:
▪20 South Water Street: Constructed as a fire station in the 1930’s and converted
to a police station in 1979, this 1½ story brick building is the only police station
and prisoner holding facility on island. Major deficiencies for its current use have
been identified.
▪3 East Chestnut Street: This 1 story wood-frame building primarily houses the
Nantucket Regional Transit Authority (NRTA) office. A small portion of the
building is allocated to the Police Department.
▪25 Federal Street: Visitor’s Services is housed in this 1½ story wood-frame
building named after the late Bernard Grossman, a prominent resident and
selectmen. Public restrooms are located here also.
Within this block is also a memorial to Veterans and a small, landscaped seating area.
Two additional structures in the downtown core contain Town administrative functions:
76
▪22 Federal Street, known as the Mooney Building: This 2 ½ story wood-frame
building contains Finance Department functions and storage. This structure is
located directly across from the Town and County Building. Major deficiencies for
its current use have been identified.
▪22 Broad Street: This 2-story structure is owned and occupied by Nantucket
Islands Land Bank, whose office is on the first floor. The second floor of the
structure contains two apartments and additional office space.
At the easterly edge of the downtown core is a cluster of town properties consisting of
the 152 (119 public parking spaces) car municipal parking lot located behind 37
Washington Street, a landscaped harbor-front park at 36, 38, 40, and 42 Washington
Street, and a landscaped area at 33B Washington Street, adjacent to the 37 Washington
Street building. 40 and 42 Washington Street are also known as the Loring properties.
The two nearby structures are:
▪37 Washington Street: A 1½ story wood-frame building containing the Building
Department, Conservation Commission, Health Department, Town Biologist,
Beach Manager, and Historic District Commission offices.
▪348 Washington Street: A 2-story wood-frame structure was constructed adjacent
to the Town Pier in 1996, was renovated in 2006, and additional renovations are
planned for 2009. It contains the Marine Department and restroom and shower
facilities.
In addition, the following town property is located on the easterly edge of downtown:
▪58 Orange Street: A 1-story wood-frame structure formerly used as the DPW sign
shop and currently used for storage.
In the mid-island area is a large 1-story metal building constructed in 1969 as a
warehouse and office for the Nantucket Electric Company. The Town purchased this
building and the surrounding twenty acres of land in 2004 for $15.5 million. A site
planning exercise has recommended that the building be replaced and the site used for
other municipal functions and affordable housing:
▪2 Fairgrounds Road: Temporary relocations of the Information Technology and
Geographic Information Systems, Planning Office (including Zoning), and Human
Services departments are now accommodated in this building. It also provides for
storage for police and fire, DPW sign shop, and its large garage bay is used for
public meetings.
Other Administrative functions are housed in:
▪40 Bathing Beach Road: one story wood frame structure housing the Park and
Recreation offices.
▪188 Madaket Road: DPW facility
▪131 Sparks Avenue: Main Fire Station. Three substations, located at 293
Madaket Road, School Street in Siasconset, and on Tuckernuck. The three
substations are operated by volunteer fireman.
Forecasted Future Needs
The consolidation of services should be considered at one or more locations. Currently,
most Town offices are scattered throughout the downtown and mid-island areas, with
others in outlying areas.
77
91 Article 77, 1997 ATM
92 Question 1, 1999 Special Town Election
Figure 30. Town Office Locations
The lack of consolidation is inefficient to both staff and the public, who must travel to
different locations to conduct business. Historically, there has been a sentiment to keep
Town offices in the downtown and a bylaw was passed to that effect.91 Warrant Article 10
at the 1999 ATM was approved, authorizing $6,750,000.00 for an expansion of the Town
and County Building, however, it was defeated at the ballot.92 As it currently exists, it is
inadequate, outdated, and cannot accommodate all departments. State offices consume
half of the building, the meeting space is limited, and the building is not large enough for
essential functions.
Most of the Town buildings do not have parking available for the public or staff, which is
an issue in the summer months. One of the only administrative facilities with parking
available is located at 2 Fairgrounds Road, and it is often over taxed by the various
departments, boards, and committees utilizing the meeting space that is available.
TOWN SERVICE ORGANIZATIONS
Our Island Home is located off of East Creek Road and is a Town owned and operated
skilled nursing facility for those who need long term nursing care. It provides inpatient
services, geriatric related education and outreach programming. The staff of Our Island
Home also provides Adult Community Day Care at an off-site location. The purpose of
78
93 http://www.nantucket-ma.gov/Pages/NantucketMA_COA/faq
94 Ibid
95 2007 Annual Town Report, page 65
96 http://www.nantucket-ma.gov/Pages/NantucketMA_HS/index
this program is to enhance the physical, emotional, and social wellbeing of the island’s
senior citizens.93 It is geared towards those who are socially isolated due to physical or
emotional limitations, and staff is trained to aid those who may need some assistance
with personal care.94 Adjacent to Our Island Home is the Landmark House, located on
Town owned land, but operated through a long-term lease to a private operator.
The Council on Aging is located in the Saltmarsh Center at 81 Washington Street, and
has a staff that provides programs and activities for senior citizens, such as nutritional
and exercise classes. Their mission is “… to identify unmet needs, design, promote, and
improve the services available for our elders through a variety of community programs
that support and enrich their lives.”95 Between six and twelve programs and activities
are offered daily, serving approximately 1,100 individuals annually. The Saltmarsh
Center also serves as the local host facility for the Social Security Administration,
Women and Infant Children (WIC), and Legal Services of Cape Cod and the Islands.
The Council for Human Services is located at 2 Fairgrounds Road. Their mission is “…
the provision of all needed human services in a manner that can best serve the residents
of Nantucket, the coordination of the efforts of existing service organizations, and the
undertaking of efforts to obtain assistance and financial aid from federal and local
government and private organizations, and the improvement of provisions of those
services. The Council and the coordinator are authorized to establish an annual budget
and expend funds, and to apply for, accept and expand federal and state grants for such
purposes aforementioned.”96 Some of the services offered include: fuel assistance,
client advocacy and referral, and housing assistance.
The Nantucket Commission on Disability meets at the Nantucket Cottage Hospital and
has one part-time staff person. Their purpose is to coordinate programs with the
Massachusetts Office on Disability in order to bring about full and equal participation in
all aspects of life in the Town for people with disabilities. The responsibility of the
Commission includes, but is not limited to, the following:
▪research local problems of people with disabilities
▪review and make recommendations about policies, procedures, services, and
activities of departments and agencies of the Town as they affect people with
disabilities
▪initiate, monitor, and promote legislation at the town, state, and federal level,
which advances the equal status of people with disabilities, and ensure that
appropriate regulations are adopted and enforced pursuant to such legislation
▪issue parking permits to disabled persons and
▪encourage public awareness of disability issues
Forecasted Future Needs
Over the years there has been discussion regarding whether Town Government should
be involved in the nursing home business. A decision about whether a nursing home
facility should remain a municipal function, a situation which is unique to Nantucket and
the state, needs to be made. In many ways, the existing Our Island Home facility is
obsolete, and significant capital costs for a new facility would be expected. A new design
79
97 Article 4, 2005 STM
98 Article 56, 2004 ATM
employing up-to-date standards, with clusters of care units instead of a central facility,
would likely render the current site inadequate.
The Saltmarsh Center has an approved design to expand by constructing second story,
but funding sources for the $3,000,000 estimated cost of construction have not been
secured.
The Nantucket Human Services Center, Inc. has developed a design for two buildings
located at a site at 7 Miacomet Road. This is a public/private partnership with the Town
of Nantucket. The facility would house about twenty social service organizations, a
heritage center to preserve Native American artifacts found on the site, as well as a
fourteen unit affordable housing component.
DEPARTMENT OF PUBLIC WORKS (DPW)
Largely devoted to the maintenance and/or operation of Town infrastructure, the DPW is
located at 188 Madaket Road and is responsible for many general services such as:
▪Maintaining and repairing roads, sidewalks, and bike paths
▪Snow and ice removal
▪Maintaining and installing subsurface drainage systems
▪Mowing and trimming of trees and other vegetation
▪Constructing, painting, installing, and maintaining Town signs
▪Providing support to other Town offices or facilities.
In addition, the DPW is responsible for the oversight of two (2) important issues facing
the island: wastewater and solid waste disposal.
Forecasted Future Needs
Since Nantucket’s physical state is critical to its success as a resort community,
maintenance of infrastructure to a high standard is critical. Most of the services currently
provided are in town, but services for out of town areas, such as the mid-island and
individual neighborhoods, will be needed in future. Amenities such as street trees will
need to be added in locations outside of the downtown, and priority areas should be
identified. In recent years the bike and pedestrian path network has been expanded and
will need maintenance and repair. In 2005 a final report prepared by MACTEC
Engineering and Consulting, Inc. was issued to the DPW for a Pavement Management
Program, which included a street-by-street maintenance and rehabilitation
recommendation (APPENDIX K). In addition to maintenance of existing roads and right-
of-ways, the public road network may need to be expanded by takings of through streets,
and those frequently used by the general public.
WASTEWATER
Municipal sewer has been serving portions of the island since the early 1920’s when the
first sewer pipes were installed in the downtown. Over time, sewer service has
dramatically expanded and the growing cost of meeting the demand, as well as
Department of Environmental Protection (DEP) regulations, prompted the Town to adopt
and implement a Comprehensive Wastewater Management Plan (CWMP) in 2005, 97
and two sewer districts, Town and Siasconset, in 2004.98
80
99 Adopted by BOS on 03-14-07
The sewer districts are served by two (2) wastewater treatment plants: one in Surfside,
and the other in Siasconset. In an effort to control the expansion of the sewer system
and stay within the wastewater treatment capacity at the plants, only properties within
the sewer district are permitted to connect to the sewer system. Although the Board of
Sewer Commissions adopted a “Checklist for Proposed expansion of the sewer
district,”99 a majority vote of Town Meeting is necessary to approve changes to the sewer
district.
The existing sewer district is irregular in shape and was originally intended to include
parcels that were already connected to the sewer system, and parcels that directly
abutted a Town sewer line. However, the sewer map excludes many parcels that qualify
to be included in the district pursuant to those standards, are located within the TOD, or
are located in the Public Wellhead Recharge District. In addition, the CWMP identifies
areas throughout the island that are environmentally sensitive or are known to have soils
that are incompatible with septic systems. Those areas are shown on a map entitled
“Comprehensive Wastewater Management Plan, Nantucket, Massachusetts,” and are
projected to be added to the sewer district over time.
Figure 31. Sewer Needs Areas
Forecasted Future Needs
An expansion of the wastewater treatment plan is currently under construction. Sewer
service has existed on Nantucket since the early twentieth century and much of the
piping needs to be replaced. The most populated areas of the island are serviced by the
sewer. However, there are many other areas that should be serviced for a variety of
reasons, such as being located within the Public Wellhead Recharge District, or in
environmentally sensitive areas. Sewer districts, and the recent passage of the sewer
bill, may provide opportunities to expand service.
SOLID WASTE DISPOSAL AND RECYCLING
81
100 MA Department of Environmental Protection, 2008
101 2007 Annual Town Report, page 90
The Town currently contracts with Waste Options Nantucket to provide solid waste
disposal and recycling services at the 188 Madaket Road site. Approximately 90% of all
residential waste generated on the island is either recycled or composted for re-use.100
The remainder is stored in lined landfill cells on site. Rubbish collection for Town
residents is not a service provided by the Town, therefore, the Madaket Road facility is
open to private rubbish collectors and the public for waste disposal. Due to a total wood
waste ban implemented by Department of Environmental Protection on July 1, 2006,
disposal of construction and demolition debris at the landfill is prohibited, thereby
requiring that it be shipped and disposed of off island.
Forecasted Future Needs
The population growth and the economy of both the seasonal and year-round
communities will impact the future needs for solid waste disposal and recycling. The
Board of Selectmen, along with the Department of Public Works, will need to identify the
future needs for storage capacity, solid waste removal, and any associated
infrastructure.
WANNACOMET WATER COMPANY
The Nantucket Water Commission and the Siasconset Water Commission have a
Memorandum of Agreement whereby the Wannacomet Water Company provides
staffing and services for both Commissions. The mission statement for Wannacomet
Water Company is as follows:
“The Wannacomet Water Company shall strive to provide high quality
drinking water that exceeds all established Federal and
Commonwealth drinking water standards, provide the highest level of
customer and water related support services achievable, educate and
inform the public of the need to protect Nantucket’s water resources,
and to accomplish this mission using prudent utility practices and
responsible fiscal management.”101
Two (2) separate aquifer protection zones are located on the island; one is the mid-
island and the other in Siasconset. Three (3) separate well fields, one in Siasconset, one
in mid-island, and the other off of Polpis Road, remove water from the aquifer for storage
and distribution. Storage tanks are located off of Cliff Road and New Lane in Siasconset,
with a new storage tank and pump station in the development stages on the
Wannacomet Water Company site off of Polpis Road.
Wannacomet Water Company actively expands and updates their distribution system to
increase the service area and to provide better fire protection.
Forecasted Future Needs
There is a demand for extension of water service in areas where water quality is poor,
such as Madaket, Cisco, Bartlett/Somerset areas. The Wannacomet Water Company
has identified areas where future expansion will occur as shown on the map below.
82
102 September 29, 2008 e-mail from Al Peterson, Airport Manager
Figure 32. Wannacomet Water - Existing and Future Service Areas
NANTUCKET MEMORIAL AIRPORT
The expansion of the airport terminal is scheduled for completion in May of 2009. This
expansion was necessary to better accommodate the Transportation Safety
Administration (TSA) requirements as well as the airline carriers, automobile rental
agencies, other airport services, and the traveling public. The airport is operated in
accordance with a plan entitled “Airport Layout Plan,” which illustrates where all future
projects are proposed to be located. In concert with that plan, the Airport Commission
approved “Phase II, Master Plan Update, Nantucket Memorial Airport, 1999” in June of
1999, which is in the process of being updated.102
In addition to the transportation service element of the airport, the Airport Commission
operates a Major Commercial Development (MCD) on airport property northeast of
Runway 33, southeast of Runway 24, and west of Madequecham Valley Road. The MCD
is accessed from New South Road and contains lease areas that are available for long-
term lease by industrial businesses. This service is important to the community because
of the location of the property outside of the Public Wellhead Recharge District, and the
large size of the lease areas, which can accommodate industrial businesses that are not
generally open to the public, and are not generally compatible with most other areas of
the island.
Forecasted Future Needs
Nantucket Memorial Airport Commission has adopted a five (5) year Capital
Improvement Plan (CIP), which identifies future needs. A new Airport Rescue Fire
Fighting (AARF) building is scheduled for construction, utilizing federal funds. The
Commission will conduct an aeronautical review of existing runways, to comply with
Federal Aviation Administration (FAA) guidelines, and is planning the relocation of the air
traffic control tower to an area that meets FAA requirements, and is locally acceptable.
The airport needs an extension of the main aviation ramp, parallel with Runway 6/24, to
provide more parking for general aviation, and will remove the building that houses Fixed
83
103 Warrant Article #11, 2008 ATM
104 http://www.nantucket-ma.gov/Pages/NantucketMA_Police/index
105 http://www.nantucket-ma.gov/Pages/NantucketMA_FIre/index
Base Operations. In addition, future projects include the renovation of the existing AARF
building, an extension of Runway 33, the construction of a parallel taxiway for Runway
15/33, and maintenance of the Bunker Road Major Commercial Development.
PUBLIC SAFETY
The Nantucket Police Department and the Nantucket Fire Department are the primary
providers of public safety on the island. The Police Department is located downtown, at
the corner of South Water and East Chestnut Streets, and the Fire Department is located
in the mid-island, between Sparks Avenue and Pleasant Street. Approximately five (5)
acres of the Town property at 2 Fairgrounds Road has been allocated for a shared
facility. In 2007 a joint police/fire computer-aided dispatch program was implemented to
further their goal of a joint facility. However, plans and funding for such a facility have not
been well received by the voters. A warrant article requesting $27.5 million dollars to
construct a shared facility at 2 Fairgrounds Road was approved at the 2008 Annual Town
Meeting, only to be defeated at the ballot.103
The Police Department is comprised of both year-round and seasonal officers. Due to
the geographic isolation of Nantucket and the lack of mutual aid available from other
communities, the Police Department consists of several specialized sectors including:
▪School Resource Officer
▪Elderly Service Officer
▪Animal Control Officer
▪Field Training Officers
▪Special Response Team
▪Canine Teams
▪Patrol and Criminal Investigations Divisions
Their mission statement is “… to serve all people in this jurisdiction with respect, fairness,
and compassion. We are committed to the prevention of crime and the protection of life
and property; the preservation of peace, order, and the enforcement of laws and
ordinances; and the safeguarding of constitutional guarantees. With community service
as our foundation, we are driven by goals that enhance the quality of life, investigating
problems as well as incidents, seeking and fostering a sense of security for individuals
and the community as a whole.”104
The Fire Department includes Emergency Medical Services (EMS) and is responsible for
fire prevention, hazardous material removal, and code enforcement, such as proper
permitting for fuel storage, explosives, tank trucks, and fire alarms. The mission of the
Fire Department is “… to protect the lives and property of the residents of the Town of
Nantucket by providing the highest possible level of service through public education, fire
prevention, emergency medical services, fire suppression, and mitigation of the effects of
natural and man-made disasters consistent with available resources. We do this to
promote, preserve, and protect our quality of life and the unique character of our Island
and the Town of Nantucket.”105 Some of their goals to achieve this mission include
reducing the risk to the community from man-made and natural disasters, and providing
response times within nationally accepted standards. The Fire Department, like the
Police Department, must deal with the lack of mutual aid available, therefore, many of
their officers have specialized training.
84
106 2007 Annual Town Report, page 108
107 http://www.bestplaces.net/city/Nantucket-Massachusetts.aspx
Emergency Preparedness is coordinated by the Police Chief in concert with other Town
departments and the Cape and Islands Chapter of the American Red Cross. A
Comprehensive Disaster Mitigation plan is being developed,106 and an Emergency
Operations Center is located at 2 Fairgrounds Road, which is a central location for Town
emergency managers to respond to any natural or man-made disaster. The primary
emergency shelter for the island is the Nantucket High School, with secondary shelters
available at 2 Fairgrounds Road, and the DPW facility off of Madaket Road. At these
locations, food, bedding, other shelter supplies, and emergency utility generation
capabilities are available.
Forecasted Future Needs
Both the Nantucket Fire Department and the Nantucket Police Department are located in
facilities that are deficient for their current use. These facilities have not been expanded
or upgraded recently and are substandard in many ways. New facilities or a shared
facility will need to be considered for construction at a centralized location. In addition,
Town administration has expressed the need for a secured impound lot, most likely in
the Bunker Road area.
SCHOOLS
One public school system serves the island, consisting of the Nantucket Elementary
School, Cyrus Peirce Middle School, and Nantucket High School. All of these facilities
are located on a single campus off of Surfside Road. In addition, there are two private
schools: Nantucket New School and Nantucket Lighthouse School. Total enrollment for
the school system, for the 2007-2008 school year, was 1,295 students, with
approximately $10,190 being spent per student.107
The middle and high schools not only serve the student population, but also serve as a
community facility for sports, meeting rooms, educational courses, theatre, and voting on
election days.
The Nantucket Community School, operated by Nantucket Public Schools, was founded
to provide year-round educational opportunities for adults and children outside the
traditional school day. Programs focus on enhancing work-place skills, supporting
personal interests, and encouraging health and wellness. Partnerships are often formed
with local businesses, organizations, or other entities, such as the Cape Cod Community
College, to provide educational options that are generally not easily accessed from
Nantucket.
Forecasted Future Needs
The Nantucket School Committee in concert with the Superintendant of Schools will
need to evaluate the future need for maintenance and/or expansion of the existing
facilities.
MARINE AND COASTAL RESOURCES
With offices located on Nantucket Harbor at 34 Washington Street, Marine and Coastal
Resources is responsible for a variety of services for the boating public such as: search
and rescue, oil containment and clean-up, assisting disabled vessels, mooring
placement, and maintenance of Town Pier slips. In addition, the Washington Street site
offers restrooms, showers, pump-out, ice, fresh water, and other necessities for boaters.
85
108 Town of Nantucket Beach Management Plan, adopted by the Board of Selectmen June 1,
2005
109 Revised Nantucket & Madaket Harbors Action Plan, May 8, 2007
This department also includes the Town and Marine Biologists, as well as the Beach
Manager. The Town Biologist conducts shellfish propagation, growing juvenile shellfish
and then distributing them to augment those that grow naturally. Since shellfishing is a
valuable component of the Nantucket winter economy and Nantucket tradition, it is
important that the shellfish population be sustained.
The Beach Management Program108 supervises all Town owned and/or operated
beaches. This includes the provision of lifeguards, endangered species management,
dune profiling, and maintaining public access.
The Nantucket and Madaket Harbor Plan update109 was completed in 2007 and
approved by the Office of Coastal Zone Management and the Department of
Environmental Protection. This plan is recommended to be updated every five years.
Forecasted Future Needs
The existing Washington Street facilities have recently been expanded to meet the
needs of the department and the community. On-going maintenance of existing
structures, including the docks and piers will be a priority.
CEMETERIES
There are thirteen cemeteries on island, ten of which are Town owned. The Department
of Public Works is responsible for general maintenance.
Name Established Area
Monumen
t Comment
Founders Burial Ground 1671 1881
Lost Quaker Cemetery 1711 1 acre location
uncertain
The Colored Cemetery 1812 2008
Native American Burial
Grounds unknown 1987 estimated 200
burials
86
Newtown Burial Ground 1775
New North Cemetery 1820's
Old North Cemetery 1709
Old Polpis Burial Ground mid 1660's
Prospect Hill Cemetary 1811
Quaker Burial Ground 1730
Quaise Burial Ground 1800's
St. Mary's Cemetery
Edward Lewis Memorial
Cemetery 1900's
Figure 33. Cemeteries
Forecasted Future Needs
The Cemetery Commission Workgroup and the Board of Selectmen will need to evaluate
the future needs for the various Town owned cemeteries. Maintenance of the existing
facilities should be a priority. There has been discussion regarding capacity issues at
the existing facilities and the need for additional land to accommodate future burials. A
crematorium and mausoleum should be considered as well.
BULK FUEL
Bulk fuel (heating oil, gasoline, and diesel) storage tanks are located in the downtown,
directly adjacent to the harbor and the Candle Street site owned by National Grid.
Storage has historically been located in this area, which was entirely industrial through
the mid twentieth century, due to the close proximity to the harbor for unloading. Over
time, this area has transformed into a mix of hotel, rental cottages, and light commercial
uses, which are not compatible with the industrial nature of bulk fuel storage. This area is
also heavily congested, particularly in the summer months, making access difficult and
potentially dangerous due to the hazardous materials being transported.
Forecasted Future Needs
An out of town storage facility has been explored on Town owned property. The Board of
Selectmen voted on September 17, 2008 to support moving the tank farm out of town.
Relocating both storage and off-loading to an out of town location would be a positive
improvement for traffic and safety in both the downtown and on the truck route leading to
downtown. Vehicles carrying these hazardous materials would no longer be travelling
through the most populated and traffic congested areas of the island to refill. Propane
bulk fuel is located on several lease areas in the New South Road industrial area.
ALTERNATIVE ENERGY
Alternative energy sources are being explored by the NP&EDC and the Energy Study
Committee, which was established at the 2003 ATM. These include land based wind
turbines on large publicly owned parcels, and an off-shore marine renewable energy
center. The NP&EDC is pursuing leased areas in federal waters to conduct studies. The
NP&EDC and Edgartown have collaborated on a tidal energy test project between
Nantucket and Martha’s Vineyard in the Muskeget Channel. Implementation of a tidal
energy demonstration project is scheduled over the next two years.
Forecasted Future Needs
There is growing interest in developing alternative energy solutions that do not require
non-renewable resources, as discussed in the natural resource section of this plan.
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110 The New Yorker, July 7, 2008. “The Island in the Wind” by Elizabeth Kolbert.
111 http://www.nationalgridus.com/nantucket/about_us/cable_about.asp
Nantucket is surrounded by powerful and plentiful natural forces, including wind, tidal,
and wave energy. There are other island communities such as Samsø, (known as “the
renewable energy island”) Denmark, that have developed a variety of alternative power
sources, making their island more sustainable, and a net energy exporter.110
Development of alternative energy that may provide a direct economic benefit to
Nantucket should be explored.
OTHER SERVICES AND FACILITIES
NANTUCKET COTTAGE HOSPITAL
Although not operated by the Town of Nantucket, the Nantucket Cottage Hospital is an
important facility where many services are provided to both residents and visitors. It is
now affiliated with Massachusetts General Hospital and is a full-service facility with full-
time physicians on staff, as well as many others who visit the island regularly to
accommodate the need for specialists. Both in-patient and outpatient services are
provided, as well as in-home care through the Visiting Nurses program.
ELECTRIC
Electrical service is no longer generated on the island, rather it is transported by two
undersea cables extending twenty-six miles from Harwich to Nantucket. The first
undersea cable was installed in 1996 and the second in 2005. Prior to the installation of
the first cable, electrical generation took place on the Candle Street site, which is a
prominent location in the downtown and is directly adjacent to the harbor. The installation
of the cable allowed on-island electrical generation to cease, which decreased the
environmental impacts to the island, and provided for increased reliability in service.111
OTHER UTILITIES
Telephone, cable, and internet services are available on-island through two service
providers, Comcast and Verizon. Not all areas of the island are serviced by both
providers, and not all areas of the island have the same telecommunications services
available. Not only are these services an amenity that all residents would ideally have
access to, but a goal of the Circulation element is to expand these services so that they
may be utilized as a means to promote less work-related travel.
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112 Nantucket Regional Transportation Plan, NP&EDC, March 5, 2007
113 RTP is a 25 year transportation document
CHAPTER 8: CIRCULATION AND TRANSPORTATION
The Nantucket Regional Transportation Plan112 (RTP) is a comprehensive report,
updated every four (4) years, that identifies existing conditions, problems and
deficiencies, goals and objectives, and a 25-year fiscally constrained schedule for
recommended improvements of the island's transportation infrastructure. It is approved
by the NP&EDC and is hereinafter incorporated as part of this Plan, attached as
Appendix L. The transportation system on Nantucket can be segmented into six
components: roadways, public transportation, bike/pedestrian paths, parking, airport,
and ferry services. The vision for transportation is to provide a system that will move
people and goods to, from, and around the island in a way that is safe, convenient,
economical, and contextually sensitive.
Nantucket's transportation challenge for the next 25 years113 is to try to minimize the
number of cars coming to the island and their use once they are here. The principal
mechanisms suggested for accomplishing this goal are to:
▪Shorten distances between trip origins and destinations with a “Town” and
“Country” settlement pattern
▪Offer a system of interconnected alternative transportation modes
▪Provide information for using the island’s alternative transportation modes
▪Create options and alternatives for parking in the downtown area
▪Utilize telecommunication infrastructure as a means to promote less work-
related travel
▪Explore an equitable and legal way to limit cars coming on-island
In regard to the last goal, respondents to both the non-binding ballot question and
questionnaire support implementation of a vehicle limitation program. Few, however, can
agree on the details. For example, in 2002 the Traffic Congestion Plan Work Group
proposed a system that included a “hard cap” on the number of vehicles that would be
allowed on Nantucket, but this system was never approved. Similarly, in 2007 the Auto
Limitation Work Group proposed a system that included a “soft cap,” or an economic-
based disincentive to bringing vehicles on Nantucket, but this system was also never
implemented.
ROADWAY NETWORK
There are approximately 89.5 miles (22%) of public roads, 88.3 miles (22%) of existing
private roads. The ownership of the remaining roads is uncertain. Orange Street,
Milestone Road (a state highway), and Old South Road have the highest traffic volumes
and serve as the main truck route between ferry terminals and the industrial uses in the
vicinity of the airport. The map below illustrates the main roadway network for the island.
89
114 Source: Massachusetts Registry of Motor Vehicles
Figure 34. Roadway Classifications (Regional Transportation Plan, 2007)
A review of available crash records from 2003 to 2005 indicates that Milestone Road,
Old South Road, Surfside Road, and Pleasant Street have the highest number of
recorded crashes during this period.114 As a result of these high traffic volumes and
number of crashes, much of the investment in the near future will focus on congestion
reduction and safety improvements primarily in the mid-island area. There are significant
gaps in the roadway systems; the Town and County Right-of-Way Committee updates
priority public road additions in Appendix M of this Plan.
PUBLIC TRANSPORTATION
The Nantucket Regional Transit Authority (NRTA) was established to alleviate seasonal
downtown core traffic congestion. Since the first season in 1995 the NRTA has become
a successful mode of transportation; service has been expanded to meet the
community’s demand. As a result ridership has grown from 139,364 in 1995 to 243,646
in 2006. As this service continues to grow, funding will be concentrated on maintaining
the successful marketing and education efforts, and expanding the system to any
underserved areas.
BIKE/PEDESTRIAN PATHS
The existing bike paths on Nantucket are mostly outside of the downtown area and along
collector roads. Currently there are approximately 29 miles of paths on Nantucket, which
are well used among both year-round and seasonal populations. All bike path
recommendations identified in the 1990 Goals and Objectives document are either
completed or at some stage of implementation.
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Figure 35. Nantucket Bike Paths (Regional Transportation Plan, 2007)
Crash data, for the three year period from 2003 to 2005, shows that there are numerous
bike and pedestrian accidents along Sparks Avenue, Pleasant Street, Orange Street,
and Surfside Road, as well as around the ferry terminals within the downtown core. It is
essential that funds be directed to the development of the “In-town” bike route,
accommodating bicycle and pedestrian traffic between the downtown area and the
outlying system of paths. Currently this route is a critical missing link in the network of
bike/pedestrian paths.
Figure 36. Parking District Map (Regional Transportation Plan, 2007)
91
115 Downtown Circulation and Ferry Access Improvement Study, Milone and MacBroom, 2008.
PARKING
Parking issues in the downtown area have been the focus of current and prior planning
studies. It is extremely limited, with only about 300 on-street parking spaces within the
core downtown parking district, and only 500 spaces within a quarter-mile walk of the
district. The only facilities for public off-street parking in these areas are the Town lots on
Washington and Silver Streets. The core downtown parking district is mostly restricted to
parking for one-hour or less most of the year, and the Residential Parking Permit District,
within the approximately quarter-mile radius from the core area, is restricted to a two-
hour time limit.
As parking availability continues to become more limited, additional parking opportunities
will need to be created within walking distance to downtown, and as part of an expanded
NRTA park-and-ride system. Parking strategies also have to be developed for the mid-
island, neighborhood and higher density residential areas away from the downtown.
NANTUCKET MEMORIAL AIRPORT
The Nantucket Memorial Airport is currently owned and operated by the Town of
Nantucket under the jurisdiction of an appointed Airport Commission, with a master plan
in place that was approved in June of 1999, and is in the process of being updated. It is
one of five (5) airports in Massachusetts with scheduled passenger service, and it is the
second busiest airport in the state. The Airport is not only an important transportation link
for visitors, residents and commuters, but it is also a vital component of moving freight on
a day-to-day basis. As use of the Airport continues to increase, improved access to
public transportation will need to be provided.
FERRY SERVICES
Nantucket is served by three ferry operators that provide transport between Nantucket
and Cape Cod: the Steamship Authority, Hy-Line Cruises, and Freedom Cruises. The
Steamship Authority is a public agency providing passenger, vehicle, and freight
transport between Nantucket and Hyannis. In addition, they license the other two private
carriers. The year-round passenger boat options include high-speed (one-hour) service
on the Steamship and the Hy-Line from Hyannis. From May to October, Freedom
operates out of Harwich Port.
Comprehensive strategies for improving the traffic circulation and access to both ferry
terminals, such as widening sidewalks, and scheduling arrivals and departures that do
not coincide with peak traffic periods, will be critical to addressing the seasonal
congestion and safety issues. These objectives will be achieved through improved
coordination and communication with the Steamship Authority, as a major reconstruction
of the main facility is under consideration. The area adjacent to the Hyline/Freedom
Cruise dock has been identified as part of an area of redevelopment and improving
access to this area should be one of the project goals.115
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PRIVATE BOATS
The marina, yacht club, boatyards and commercial mooring operators service the
boating community in Nantucket Harbor. The majority of the marina clientele are large
power vessels, in contrast to the commercial moorings that are most often used by
sailboats. According to the Nantucket Marine Department there is a summertime
weekend turnover rate of approximately 100 boats per day in Nantucket Harbor.
The Town of Nantucket owns and operates a boat dock that can accommodate 100
boats with a maximum length of 40 feet. There is a sewage pump-out facility, pump-out
boat, dinghy dock, ice, potable water, public restrooms, showers, trash and recycling
barrels. The Nantucket Harbormaster’s office is located at the dock.
The Nantucket Boat Basin is a 240 slip marina/resort facility managed by Island Resorts.
This facility is located off New Whale Street within Nantucket Harbor between Town Pier
to the south and Old North Wharf to the north. Madaket Marine has a floating dock
system that can accommodate approximately 64 boats at full capacity in Madaket
Harbor.
A 1989 survey documented approximately 1,800 private moorings and 138 commercial
moorings within both Nantucket and Madaket Harbors. Of these, 1,325 private moorings
and 125 commercial moorings are found in Nantucket Harbor, with the 475 remaining
private moorings and the 13 remaining commercial moorings located in Madaket Harbor.
93
116 Jeffrey Luke, Catalytic Leadership, Strategies for an Interconnected World, Jossey-Bass, 1998
CHAPTER 9: IMPLEMENTATION
Nantucket has a history of successful implementation of most of its planning objectives
to date. The core mission behind the creation and development of this Plan is that it will
be implemented; this is achieved through a combination of political will, resources, and
education. Jeffrey Luke, a well-known public policy author, writes of the importance of
implementation in Catalytic Leadership, Strategies for an Interconnected World,116 as
follows:
“Implementation is more complex and difficult than commonly assumed. The
often-overlooked challenge of public leadership is not necessarily the adoption of
policy options, but sustained implementation. It will encounter roadblocks,
resistance and interferences; no single person or agency can implement the
strategies alone. Implementation creates unique leadership challenges to sustain
action beyond the initial burst of energy following the development of strategies
by key stakeholders.”111
Since this document was created by the Planning Board, in conformance with the
specific standards set by state law (MGL Chapter 41, 81D), its focus is “the long-term
physical development” of the community. Much of the implementation measures are
designed to generate from the Planning Office, which provides professional services to
the Planning Board and NP&EDC, as well as Town administration. A schedule of land-
use related implementation measures is included (see Figure 36). Neither the NP&EDC,
nor the Planning Board, has authority over Town administrative entities. Other town
departments, boards and commissions have roles to play in initiating changes to their
practices, rules and regulations to be in compliance with this Plan, a key reason why
input and cooperation was requested of them. Support by the entire community is also
being sought, to demonstrate the resolve of the voters to address challenges faced by
Nantucket. In addition, private entities and individuals are among the “key stakeholders,”
whose input, participation, cooperation and support is vital to successful implementation.
As noted by Luke:
“Implementing and sustaining action faces unique challenges and requires inter-
organizational responses among many individuals, agencies, jurisdictions, and
sectors. Research and experience from cross-functional teams and project
implementation by public-private partnerships reveal five common barriers to
implementation that need to be addressed:
Turf barriers
Communication and language barriers
Lack of enabling structures and norms
Leadership limited to one champion
Excessive pressure for immediate results”112
Many reviewers of the draft plan asked for “specific” implementation measures and in
fact, this Plan does not and never intended to be that specific. The Plan is specific where
there has been extensive input and experience and less so where there the opposite is
true. Less specific sections may be areas of the Plan that require further development
and discussion among key stakeholders. However, as Luke states:
94
“Planning in too much detail can paralyze or reduce flexibility to emergent
opportunities. Successful implementation requires enough stakeholder
commitment and constituent support to take the actions called for in multiple
strategies. It also requires sufficient financial and human resources allocated
over the long term, and sustained cooperative behavior among multiple agencies
and individuals (Nutt and Backoff, 1995; O’Toole, 1995).”113
Nantucket is entering into a period of financial uncertainty as this Master Plan process
comes to a close and the importance of flexibility and long-term commitment cannot be
emphasized enough under these circumstances. A general matrix has been prepared
that identifies who is responsible for implementation actions (see Figure 37). The
Planning Board underscores the importance of working together, and in the interests of
facilitating further discussions, incorporates as a guide the chart in Figure 38 as a
reference and resource.
95
CHAPTER 1 CHAPTER 2 CHAPTER 3 CHAPTER 4 CHAPTER 5 CHAPTER 6 CHAPTER 7 CHAPTER 8 CHAPTER 9
Goals and Policies
Statement Land Use Housing Economic
Development
Natural and Cultural
Resources
Open Space and
Recreation
Services and
Facilities Circulation Implementation
Planning Board Primary Primary Secondary Secondary Support Support Secondary Primary
NP&EDC Secondary Primary Primary Primary
Board of
Selectmen Secondary Support Primary Primary Support Support Primary Support Primary
Water
Commission Support Support Primary Primary
Airport
Commission Primary Primary Primary
Nantucket Regional
Transit Authority Primary Primary
Land Bank
Commission Support Primary Primary Support
Conservation
Commission Support Primary Support Support
Historic District
Commission Support Support
Parks and Recreation
Commission Secondary Primary Support
School
Committee Secondary Primary
Marine
Department Primary Primary Support Secondary
Police
Department Primary Support
Fire
Department Primary Support
Building
Department Support Support
Department of
Public Works Support Support Secondary
Information
Technology
GIS
Support Support Support Support Support Support
Steamship
Authority Primary Primary
Housing
Authority Primary Support Primary
Agency
Figure 37. Implementation
96
Giving information,
opinions, and suggestions
Responding to others
suggestions and opinions
Responding to
commonalities
Responding to differences
in perspective and values Using questions Managing the groups time
WORK
Providing a catalyst for
group members to
address an issue
1. Suggesting group norms
2. Providing relevant data to
educate and inform
3. Identifying underlying
interests
4. Suggesting workable options
by linking different ideas
together
5. Suggesting experiments
1. Crediting others' ideas
2. Piggybacking on others' ideas
3. Asking clarifying questions
4. Exploring others' feelings
and expressing own feelings
5. Summarizing and reflecting
back ideas
1. Testing for agreements
2. Clarifying both shared
interests and
complimentary interests
3. Summarizing areas of
common ground
4. Building on areas of
agreement
5. Using agreement to
move forward for dealing
with more difficult
conflicts
1. Identifying and clarifying
differences
2. Clarifying underlying interests
3. Clarifying semantic confusion
and misunderstanding.
4. Using differences as basis for
inventing new approaches and
strategies
1. Asking questions that
invite others to speak -
"gate keeping"
2. Asking information -
seeking questions of
what or how
3. Asking questions for
reality testing
4. Asking for
summarizing comments
from each group
member
1. Using deadlines and other
"temporal markers" as
catalysts to move the group
forward
2. Segmenting the groups time
and using milestones against
which to measure progress
3. At a "halfway" point,
summarizing group
agreements
FIGHT
Using energy against
others or the group
leaders
1. Using emotion/laden words
2. Repeating points
3. Making speeches
4. Accusing, blaming
5. Name-calling
6. Taking fixed positions
1. Criticizing
2. Interrupting
3. Hairsplitting
4. Actively ignoring
5. Categorizing
6. Selectively using and
interpretating what was said
7. Personally attacking
someone's suggestion or
interpretation
1. Ignoring common
ground and agreements
2. Discounting agreements
as unimportant or
irrelevant
3. Continuously returning
to areas of disagreement
1. Focusing only on differences
2. Enlarging number or size of
differences
3. Using differences as basis for
stimulating conflict and rivalry
4. Labeling and stereotyping
others ideas
5. Using outside experts to
bolster ones position
6. Using power plays and coercive
tactics to force ones' perspective
or values on the group
1. Using questions to
pin down or trap
2. Asking leading
questions
3. Making personal
attacks or critical
statements masked as
questions
1. Arguing for tight deadlines
that create stress
2. Insisting on fixed timelines
3. Fighting about whether
deadlines are real or not
FLIGHT
Draining energy out
and diverting attention
1. Taking side trips, "chasing
rabbits"
2. Telling irrelevant stories
3. Playing down differences to
avoid conflicts
4. Intellectualizing
1. Being unresponsive; giving
no acknowledgment
2. Opting out of discussions
3. Suppressing own feelings
and reactions
4. Expressing futility,
resignation, hopelessness
5. Deferring to others or the
group leaders
1. Agreeing with
everything
2. Agreeing prematurely to
avoid conflict and other
group-think behaviors
3. Agreeing on easy, quick
fixes
1. Smoothing over differences
2. Avoiding discussion of
differences hoping they will go
away
3. Using secrecy to avoid
confrontation
4. Complying with or submitting
to the strongest position of others
1. Asking irrelevant
questions
1. Ignoring deadlines
2. Jumping to quick fixes or
simple answers to avoid
conflict
Guide for Future Implementation: A Practical Reference for Group Interaction
Source: Luke, pages 206-208. Adapted from Sheppard, 1979
Figure 38. Reference Guide
97
IMPLEMENTATION MEASURES ARE DIVIDED BY ELEMENTS 2 THROUGH 8 AS FOLLOWS :
LAND USE: CHAPTER 2
Zoning District Implementation Schedule
Districts To Be Phased Out Year
LC 2009-
2010
AHD, OIH, ALC 2012
R-1 Country Overlay District 2013
SR-2 2014
RC 2015
RC-2 2020
R-2 Country Overlay District 2020
R-1 Town Overlay District 2025
Districts To Be Mapped Year
R-5, R-40 2009-
2010
VN 2010
V-TEC 2011
V-R 2012
Districts To Be Reduced Year
Town/Country Overlay Anomalies 2006-
2020
LUG-2 Areas on Western Portion of Island 2009-
2012
High Density Residential 2015
Districts To Be Expanded Year
CDT, CI, CMI, CTEC, CN 2006-
2020
LUG-3 Western Island, Coastal Areas, Open Space 2008-
2011
Figure 39. Zoning District Implementation Schedule
GOAL 2.1: To preserve Nantucket’s character, based on a settlement pattern of a
densely settled Nantucket “Town,” separated and distinguished by intervening areas of
largely undeveloped rural land “Country”, containing neighborhoods of “villages,”
including Cisco, Dionis, Madaket, Pocomo, Quidnet, Siasconset, Surfside, Tom Nevers,
and Wauwinet.
98
POLICY:
2.1.1: To make the distinction between Town and Country. (CCP 1.1)
a.Implement zoning changes in accordance with schedule in Figure
39
b.Amend Zoning Bylaw to remove “one-size-fits all” standards such
as height, set backs, and use allowances
2.1.2: To mitigate development in the Country Overlay District through land
acquisition, conservation restrictions, regulatory methods, and incentives. (CCP
1.6)
a.Amend Rules and Regulations Governing the Subdivision of Land
to differentiate infrastructure standards
b.Develop a cluster and/or low impact development by-right
allowance in the Zoning Bylaw
c.Develop Transfer of Development Right (TDR) Bylaw
2.1.3 To match existing development patterns, minimizing the creation of zoning
nonconformities, to the greatest extent possible.
a.Analyze character of existing development, including existing
ground cover and building heights, as part of zoning map changes
GOAL 2.2: To define and develop standards for growth appropriate for the patterns set by
the existing built environment.
POLICY:
2.2.1: To create area plans, through a participatory process, to facilitate zoning
district changes that implement the concept of Town and Country, and to foster
the creation of areas with neighborhood services. Such plans would identify
neighborhood residential and service areas. (CCP 1.2)
a.Schedule area plan creation for all areas of the island not currently
completed
b.Define areas within TOD to find subareas for possible area plan
development
2.2.2: To encourage the retention of small neighborhood centers consisting of
mixed-use development. (CCP 1.4)
a.Implement mapping of new CN, CTEC, VN, and VTEC districts
b.Develop specific standards for individual neighborhood centers based
on local service needs
2.2.3: To protect established residential neighborhoods. (CCP 1.4)
a.Remove commercial zoning from exclusively residential areas
b.Match the existing density with the zoning district through map
changes
2.2.4: To reserve commercial-only and industrial-only zones, while guarding
against commercial sprawl. (CCP 1.4)
a.Implement mapping of CI
b.Implement restrictions on residential uses within CI, CN, CMI, and
CDT by establishing residential use as an accessory use
GOAL 2.3: To better manage the design and location of new residential and commercial
development, in a manner that island-wide:
Investigate form-based zoning for CDT and CMI districts;
Protects important natural and cultural resources;
Is compatible with the island’s historic character;
99
Minimizes dependence upon the automobile;
Create opportunities for affordable housing
depending on location:
a.Encourages development in or near village centers (COD);
b.Promotes and preserves the vitality of downtown (TOD).
POLICY:
2.3.1: To preserve the character and integrity of traditional town centers,
especially the Old Historic Districts of Nantucket and Siasconset. (CCP 1.3)
a.Eliminate LC and RC districts downtown
b.Decrease ground cover in ROH
c.Revise standards for SOH
d.Remove parking requirement by substituting a parking impact contribution
system
HOUSING: CHAPTER 3
GOAL 3.1: To provide for the housing needs of residents, specifically targeting
affordability for the year-round, working community.
POLICY:
3.1.1: To provide incentives, especially in the TOD, for the creation of restricted
housing units. (CCP 2.3)
a.Amend Zoning Bylaw to include density bonuses for CDT, CMI, CN,
CTEC, R-5 and R-10
b.Amend accessory apartment bylaw to remove disincentives, such as
year-round residency requirements and design restrictions
c.Develop a proposal for tax abatement for affordable rentals
3.1.2: To develop public/private partnerships to create new housing opportunities
for those committed to year-round residency in locations dispersed throughout
the community. (CCP 2.4)
a.Seek Community Preservation Committee funding for an account to:
▪Purchase distressed or low cost market rate housing for resale with
covenants
▪To “buy down” the cost of market rate units
▪To develop down payment assistance program
3.1.3: To develop strategies designed to encourage the retention of year round
owner occupied housing units. (1990 Goals and Objectives E-2.1)
a.Reducing zoning impediments to multi-family housing
b.Assist in the development of the following properties:
▪NHA property at Surfside Road and South Shore Road
3.1.4: To meet the planned production goal of 20 dwelling units per year.
a.Develop the following Town-owned properties:
▪2 Fairgrounds Road
▪58A Orange Street
▪Miller Lane
▪Cow Pond Lane
b.Develop additional building lots through creative land assembly (i.e.,
paper roads)
100
c.Create a housing bank trust fund from the revenue created by the
disposition of “yard sale” parcels
GOAL 3.2: To provide housing for seasonal employees, in both the public and private
sectors.
POLICY:
3.2.1: To provide seasonal employee housing, dispersed throughout the
community. (CCP
2.6 and 2.7)
a.Support private efforts to construct employee housing
b.Revise inclusionary housing standards for MCD’s
GOAL 3.3: To meet the needs of senior citizens and those with special needs.
POLICY:
3.3.1: To support and promote any efforts of the Town of Nantucket or other
entities to expand affordable housing opportunities for senior citizens. (CCP 2.8)
a.Combine the OIH, ALC, and AHD into the general Zoning Bylaw
3.3.2: To meet the need for housing and related care for special needs
populations. (CCP 2.9)
a.Support private efforts to establish and operate facilities that serve this
segment of the population
ECONOMIC DEVELOPMENT : CHAPTER 4
GOAL 4.1: To promote a healthy, balanced, year-round and seasonal economy that
improves the quality of life for island residents, stressing support for local businesses
and workers.
POLICY:
4.1.1: Build a stronger year-round economy and restore and support downtown
as a year-round business and employment center. (CCP 3.3)
a.Determine a plan for the block bounded by Federal, Broad, South
Water, and East Chestnut Streets
b.Implement 43D objectives for the redevelopment of the National Grid
property located between Candle Street, Commercial Street, and New
Whale Street
c.Explore a Business Improvement District (BID) for the downtown
d.Support recommendations developed by the Downtown Revitalization
Committee
e.Develop retention strategies for core year round businesses such as
drugstores and supermarkets
f.Develop a proposal for tax abatement for businesses that are open
year-round
4.1.2: To encourage the expansion of existing year-round businesses and
establishment of new year-round businesses in the mid-island area, in a manner
that promotes a cohesive, pedestrian-friendly, mixed-use retail, service, and
residential area. (CCP 3.4)
a.Amend the Zoning Bylaw to prevent residential uses from competing
with commercial uses in the mid-island commercial area
b.Continue implementation of the commercial node concept
101
c.Remove the Mid-Island Planned Overlay District (MIPOD) and
implement the CMI zoning district
d.Implement the streetscape elements of the Mid-Island Area Plan
4.1.3: To encourage and develop opportunities for low-impact, home-based
businesses. (CCP 3.11)
a.Revise home occupation guidelines by zoning district
4.1.4: To provide improved public services, particularly in the downtown area.
(1990 Goals and Objectives F-1.5)
a.Complete study of downtown parking garage as identified in the 1990
Goals and Objectives
b.Establish a consolidated location for NRTA buses, including a covered
waiting area for the public
c.Identify needs and possible locations for additional public restrooms
4.1.5: To support and cultivate a wide variety of small scale economic activities
that may be easily integrated into the community with little or no adverse impact
on island resources. (1990 Goals and Objectives F-5)
a.Reduce restrictions on home occupations in certain zoning districts
b.Implement village commercial zoning districts in the COD
c.Implement neighborhood commercial districts in the TOD
4.1.6: To promote agricultural industries. (CCP 3.8; also see section 6.3.2 of this
plan)
a.Implement village commercial zoning districts in the COD
b.Expand zoning districts that allow Open Air Markets
4.1.7: To promote and support sustainable fisheries. (modified CCP 3.7)
a.Continue the marine fisheries program through the Marine Department
4.1.8: To support the development of small businesses that provide the goods
and services for increasing energy efficiency and utilizing alternative energy.
a.Explore state and federal funding programs
NATURAL & CULTURAL RESOURCES: CHAPTER 5
GOAL 5.1: To identify and preserve the natural, historic, and cultural resources of the
community.
POLICY:
NATURAL RESOURCES
5.1.2: To investigate and recommend environmentally responsible technologies
in order to protect and preserve Nantucket’s beaches, dunes, and coastal banks.
(CCP 4.4)
a.Expand sewer service to environmentally sensitive areas
b.Provide incentives for utilizing innovative septic system designs in
environmentally sensitive areas where sewer service is not available
5.1.3: To protect the island’s shorelines from encroachment by development.
(CCP 4.5)
a.Place shorefront properties in the COD in low density zoning districts
b.Revise Zoning Bylaw to allow Cluster and MRD’s by-right
102
5.1.4: To preserve and enhance the water quality of Nantucket’s harbors in view
of the substantial environmental, aesthetic, recreational, and economic benefits
that such protection would afford. (CCP 4.7)
a.Extend sewer service to areas within the Nantucket and Madaket harbor
watershed
b.Provide incentives for utilizing innovative septic system designs in
environmentally sensitive areas where sewer service is not available
c. Develop an educational program for homeowners and lawn care
professionals regarding the effects of fertilizers and other lawn chemicals
5.1.5: To support responsible development of alternative energy systems
including wind, tidal, wave, and solar.
a.Amend existing regulations to promote the use of alternative energy
b.Amend HDC guidelines to better accommodate alternative energy
systems
HISTORICAL RESOURCES
5.2.1: To better document Nantucket’s historical resources. (CCP 4.10)
a.Identify and map historical resources
5.2.2: To strengthen the protection of the island’s historical resources. (CCP
4.11)
a.Negotiate preservation restrictions with property owners to preserve
historic architectural resources
b.Explore tax relief or other incentives for property owners who place
preservation restrictions on their property
5.2.3: To identify and protect important archaeological resources that might be
threatened by development. (CCP 4.13)
a.Map areas known to contain archeological resources
CULTURAL RESOURCES
5.3.1: To recognize, support, and expand the island’s arts and cultural
enterprises as significant contributors to the Nantucket economy. (CCP 3.9)
a.Establish mentoring program for local artisans and farmers
5.3.2: To consider creating a Performing Arts Center. (CCP 6.31)
a.Support private development of Performing Arts Centers and other
community buildings
5.3.3: To enhance recognition of and support for the island’s arts and cultural
community as important to the island’s economic and spiritual well-being. (CCP
7.10)
a.Actively seek funding to support the visual and performing arts in the
public school system
b.Provide public space for cultural festivals and events
5.3.4: To preserve the tradition of public access to Nantucket’s shoreline, while
weighing such access against the need to protect sensitive shoreline and inland
water resources, and the rights of property owners. (CCP 4.3)
a.Continue the “One Big Beach” program
103
OPEN SPACE & RECREATION: CHAPTER 6
GOAL 6.1: To protect Nantucket’s native ecosystems and biodiversity.
POLICY:
6.1.1: To aggressively acquire land and conservation restrictions to protect
natural ecosystems. (CCP 4.1)
a.Coordinate with private agencies to secure conservations restrictions
b.Support the Nantucket Islands Land Bank
c.Transition to strategic acquisition of open space
GOAL 6.2: To maintain the quality of Nantucket’s water bodies.
POLICY:
6.2.1: To preserve and enhance the water quality of Nantucket’s inland ponds.
(CCP 4.8)
a.Continue pond opening program
b.Target open space acquisitions and conservation restrictions on land
surrounding inland ponds
c.Research new technology for innovative septic systems for areas in
environmentally sensitive areas
GOAL: 6.3: To establish and manage an island-wide network of publicly and privately
held open spaces, intended to protect critical land and water resources, habitats, and
scenic vistas, while affording reasonable public access, consistent with a policy of wise
stewardship.
POLICY:
6.3.1: To establish connecting open-space corridors extending from the
greenbelt into the TOD, and to preserve and establish private and public
greenspace throughout the district. (CCP 1.5)
a.Revise Zoning Bylaw to allow Cluster and MRD subdivisions by-right
6.3.2: To support agriculture as an important economic activity and as a critical
component of the traditional landscape. (CCP 3.8)
d.Establish venues for local farmers markets
Goal 6.4: To provide park and recreational facilities that meet the diverse needs of
residents and visitors of all ages.
POLICY:
6.4.1: To expand recreational facilities to meet the increasing needs of residents,
seasonal employees, and visitors. (CCP 6.24)
a.Expand recreational facilities at Town owned properties such as Tom
Nevers, Bathing Beach Road, and the schools
SERVICES & FACILITIES: CHAPTER 7
GOAL 7.1: To provide facilities for a municipal government that meets future needs.
POLICY:
7.1.1: To retain and expand governmental offices downtown. (CCP 6.28)
a.Evaluate the East Chestnut Street, Federal Street, Broad Street, Easy
Street block for possible consolidation of governmental offices
104
b.Evaluate the feasibility of the Mooney Building for on-going municipal use
GOAL 7.2: To provide educational facilities.
POLICY:
7.2.1: To provide high-quality educational facilities adequate to meet present and
future growth needs. (CCP 6.26)
a.Coordinate a Facilities Master Plan with the School Committee
7.2.2: To improve school facilities to meet a variety of community needs. (CCP
6.27)
a.Expansion of educational facilities should include additional amenities to
serve the educational and recreational needs of the public
GOAL 7.3: To provide police and fire facilities and services.
POLICY:
7.3.1: To provide adequate public-safety facilities for a rapid response to
emergencies throughout the island. (CCP 6.16)
a.Locate future public safety facilities in a centralized location
b.Continue to enhance the Town GIS system
7.3.2: To provide a safe, secure environment for all residents and visitors. (CCP
7.1)
a.Establish a centralized public safety facility
GOAL 7.4: To maintain and protect the quality and quantity of the island’s groundwater
resources, ensuring a healthy drinking water supply.
POLICY:
7.4.1: To provide a public water-supply system that safeguards adequate fire
protection.
(CCP 6.11)
a.Upgrade existing water piping that does not meet minimum standards for
pressure
b.Extend water service to areas that are not currently served
c.“Loop” water piping where possible to increase water pressure
d.Install additional water towers as necessary to meet capacity and storage
demands
7.4.2: To upgrade the existing public water-supply transmission, distribution, and
storage systems. (CCP 6.13)
e.See 7.4.1 a, b, c, and d above
GOAL 7.5: To process the island’s solid waste in a manner that maximizes the recovery
and recycling of materials, and minimizes permanent land-filling.
POLICY:
7.5.1: To increase the effectiveness of the island’s innovative solid-waste
recovery facilities.
(CCP 6.9)
a.Develop a public education program regarding solid waste and recycling
105
b.Enforce Town Bylaw regarding take-out food packaging
GOAL 7.6: To provide for sewage disposal that protects the island’s sole source aquifer,
incorporating expansion capabilities to meet projected growth.
POLICY:
7.6.1: To extend sanitary sewer systems to the Town Overlay District. (CCP 6.6)
a.Include all lots in the TOD in the sewer district
7.6.2: To extend the sanitary sewer system to areas of the island where it is
deemed to be the most prudent and cost-effective way to protect the island’s
water resources. (CCP 6.8)
a.Provide incentives for property owners in the Wellhead Protection Zone to
connect to the sewer system
b.Include lots in the Wellhead Protection Zone and other environmentally
sensitive areas in the sewer district
GOAL 7.7: To provide energy and utility services to the community in a manner that is
affordable, efficient, and environmentally safe.
POLICY:
7.7.1: To continue the program of placing utility lines underground. (CCP 6.17)
a.Require placement of utility lines underground for all new residential and
commercial development
GOAL 7.8: To provide for the physical, social, health-care, and economic needs of the
community, by providing those public and private human services which improve for all
ages.
POLICY:
7.8.1: To consider central facilities for human/social service agencies to enhance
the effectiveness of health-care services. (CCP 6.30)
a.Seek funding to establish a facility at 7 Miacomet Road or another
suitable location
7.8.2: To provide adequate sustenance for all residents. (CCP 7.2)
a.Encourage local food production
7.8.3: To establish and expand programs that promote the physical and mental
health of the community. (CCP 7.6)
CIRCULATION (TRANSPORTATION ): CHAPTER 8
GOAL 8.1: To minimize the number of cars coming to the Island and their use once they
are here.
POLICY:
8.1.1: Shorten distances between trip origins and destinations by promoting a
Town and Country settlement pattern.
a.Amend the Rules and Regulations Governing the Subdivision of Land to
encourage the interconnection of existing and proposed streets in keeping
106
117 Also known as the Downtown Circulation and Ferry Access Improvement Study, Milone and
MacBroom, 2008.
a pattern of blocks and interconnected streets within the Town Overlay
District and village centers in the Country Overlay District
b.Adopt and implement a policy concerning the improvement and
maintenance of roads consistent with the Town and Country concept
c.Amend the Zoning Bylaw to allow further residential and mixed-use
development of lots in existing town neighborhoods and in neighborhood
centers, creating efficient land-use patterns that result in overall
reductions in future traffic generation
d.Accept streets or easements as public ways when they are shown to be
constructed to Town specifications or provide an opportunity for bicycle,
pedestrian, or other transportation connections
e.Develop regulations to preserve the scenic integrity of the Island's four
designated scenic roads: Madaket Road, Polpis Road, Milestone Road,
and Wauwinet Road
8.1.2: Offer an array and interconnection of alternative transportation modes to
the traveling public.
a.Implement the objectives and recommendations listed in the Public
Transportation and the Bicycle and Pedestrian sections of the Regional
Transportation Plan
b.Coordinate the Town's efforts to construct bike paths with those of private
developers who contribute to the construction of on-site and off-site bike
paths as a condition for approval
c.Eliminate any access obstruction for the disabled on existing sidewalks
d.Develop alternative solutions to identified "problem intersections" along
Milestone Road, Old South Road, Surfside Road, and Pleasant Street for
pedestrians and bicyclists
e.Secure design and construction funding to install accessible routes and
sidewalks from the SSA and Hy-Line ferry terminals to the following
areas:
▪All downtown public areas
▪Bike paths adjacent to the downtown area
▪The Nantucket Cottage Hospital
▪The Mid-Island area
f.Coordinate with DPW, Visitor Services, NRTA, and other agencies to
identify location and quantity of bike racks that may be necessary in the
core area, at the beaches, and at the airport to encourage and facilitate
bicycle use
g.Seek supplemental funding from acceptable sources to increase
frequency of shuttle service to add ridership capacity and induce greater
participation in the shuttle program
h.Seek supplemental funding from acceptable sources to expand the hours
of operation for the NRTA's "beach buses" so that they also serve as
general bus routes
i.Seek funding to design and construct taxi stand improvements along New
Whale Street and Straight Wharf,as identified in the Downtown Traffic
Study117
107
8.1.3: Provide the public with information for using the island’s alternative
transportation
modes.
a.Maintain and improve web pages that provide information on Nantucket’s
bicycle, pedestrian, and public transportation systems
b.Publicize traffic laws that apply to bicyclists
c.Assist as necessary with the development of additional information
systems to inform travelers on ferries, airplanes, taxis, the shuttle, and at
the Visitor Center and Chamber of Commerce of details concerning bike
routes, shuttle routes, and any changes to those systems
d.Continue to encourage downtown restaurants to persuade potential
patrons,at the time reservations are made,to use taxis or the NRTA
shuttle system
e.Encourage employers to purchase shuttle passes for their employees
f.Promote the use of NRTA Park and Ride lots (existing commercial
parking lots) for downtown access as an alternative for island residents
and visitors who reside beyond walking distance to existing shuttle routes-
and as an alternative to use of the Washington Street parking lot, which is
over-utilized
8.1.5: Create options and alternatives for parking in the downtown area.
a.Revise the Town's parking requirements for downtown parking so that
there is a better balance between the need to accommodate parking
demand and the need to protect in-town open spaces and historic
resources
b.Revise the Town's design standards for parking facilities and require site
review prior to construction
c.Continue to evaluate alternative parking permit systems for the downtown
area
d.Identify and evaluate peripheral parking areas to provide additional
parking options for the NRTA and downtown area
e.Encourage the lodging establishments to provide or expand the use of
vans whenever a parking waiver is granted by the Planning Board
8.1.6: Utilize the telecommunication infrastructure as a means to reduce the
number of trips.
a.Develop a program through the Town’s Human Resources Department
that would allow certain Town employees to work from home
8.1.7: Ultimately, find an equitable and legal way to limit cars coming on-island.
a.Continue to analyze the need to implement a vehicle sticker program, as
recommended by the Auto Limitation Work Group in 2006, which would
require issuance of a unique and non-limiting sticker for each vehicle on
Nantucket
108
GOAL 8.2: To provide a transportation system that will move people and goods to, from,
and around the Island in a way that is safe, convenient, economical, and sensitive to the
character of the various areas of the Island.
8.2.1: Reduce traffic congestion and improve safety in the vicinity of Nantucket's
schools.
a.Create a complete system of sidewalk and bike path connections around
the schools (1/2 to 1 mile radius) to facilitate safe travel by foot, and
reduce the number of student drop-offs by automobile
b.Study the feasibility of implementing additional traffic-calming measures
along the schools' frontages on Surfside Road and Sparks Avenue in
order to reduce the speed of traffic and increase safety for pedestrians
c.Encourage the School Committee to reduce auto-dependency and
congestion at the schools by means of the following measures:
▪Review school-bus policies for ways to increase ridership
▪Engage in a process to develop and implement a "Safe Routes to
Schools" program on Nantucket to heighten the safety of walking and
bicycling to school, and thus reduce auto-dependency and congestion
▪Promote use of carpooling by parents driving students to school and
by students driving themselves to school, and establish a ride-
matching service for parents and students
▪Promote use of the school-bus system as an alternative to use of the
automobile
8.2.2: Consider environmental and historical impacts of any transportation
system improvement.
a.Evaluate the measured and quantified environmental and historical
impacts of proposed projects in association with the economic benefit
during the criteria scoring and prioritizing of the proposed project
schedule for the annual Transportation Improvement Program, if
applicable
b.Develop project scopes that protect and enhance environmental and
historical resources, and preserve critical habitats and biodiversity
c.Require a street configuration for subdivisions in or near villages which is
consistent with historic village patterns; continue to encourage a pattern of
connected streets
d.Include protocols for removal or control of invasive species identified
within a project area as part of a project’s design process
e.Prevent the introduction of invasive species identified by the Natural
Heritage & Endangered Species Program or the Nantucket Conservation
Commission as part of any transportation improvement project
f.Coordinate, as required, with the appropriate agencies concerning
projects within wetland resource areas and priority habitats for
endangered species
8.2.3: Rely upon road design and traffic control approaches that maximize public
safety.
a.Consider the degree of a project’s safety improvement as a key factor in
evaluating and prioritizing projects for the Transportation Improvement
Program
109
b.Institute a variety of traffic-calming measures to slow the speed of traffic
and creating more pedestrian-friendly streets. Particularly in the mid-
island area, those measures might include:
▪Convert two-way streets to single-lane, one-way streets;
▪Add on-street parking;
▪Create "bulb-outs" at major pedestrian crossings to shorten crossing
distances;
▪Reduce street pavement width to add sidewalk and bike path
capacity;
▪Create "islands"in collector roads to force slowing of traffic at major
pedestrian crossings
8.2.4: Accommodate the need for bulk delivery of commodities to the Island in a
manner that is efficient, cost-effective, and in keeping with the character of the
community.
a.Seek funding for roadway improvements along the established truck
routes and collector roadways that enhance the safety and reduce traffic
congestion
b.Encourage distribution of truck-route maps for downtown Nantucket to all
truck drivers when they board in Hyannis
c.Provide a permanent harbor front facility to off-load bulk freight, such as
stone and gravel, fuels, shell- and fin-fish, and the like
d.Investigate the pros and cons of implementing time-of-day regulations for
downtown deliveries
8.2.5: To provide for safe and convenient access to the island through its other
port of entry, Nantucket Memorial Airport, while considering the island's
environmental and historical limitations
a.Enter into discussion with the Airport Commission concerning the hours of
operation for the airport, including its closing during night hours, as other
airports have done
b.Strive for the expansion of alternative transportation modes servicing the
airport, to reduce auto-dependency
c.Enter into discussion with the Airport Commission concerning the existing
noise contours
8.2.6: To provide an efficient and convenient water-transportation system that
connects mainland ports with Nantucket Harbor.
a.Advocate for convenient and unimpaired access by water to and from the
mainland, including affordable fares, to be provided to Nantucket resi-
dents at all times of year
8.2.7: To encourage the coordination of land side services on Nantucket at time
of ferry arrivals.
a.Study the ways and means of encouraging smooth transitions between
the ferries and Nantucket destinations, while reducing the secondary
impacts of ferry service on the downtown area
b.Urge all ferry services to provide destination facilities with the number of
walk-on passengers, so that an appropriate number of shuttles, taxis, and
bicycles are available on arrival
110
c.Encourage scheduling of arrivals and departures of ferries that do not
conflict with peak traffic periods in the vicinity of the ferry terminals
8.2.8: To encourage the provision of freight service to the island that is
dependable, affordable, and meets the economic needs of the island, while
considering the land-side effects of scheduling, vehicle size, and trip frequency.
a.Encourage the Steamship Authority to study the feasibility of allowing
freight deliveries arriving in Nantucket out of the port of Hyannis or other
ports to be made so as not to coincide with peak traffic periods
b.Encourage the Steamship Authority to participate in a feasibility study of
the establishment of a facility to "break bulk” on Nantucket, allowing the
transfer of freight from larger to smaller trucks
8.2.9: To coordinate Steamship Authority and private passenger carrier arrivals
and departures with land side transportation.
a.Renew talks with the Steamship Authority toward the creation of a mutual
strategy to improve congestion at the Steamship Authority and lower
Broad Street
b.Study all ferry wharves and adjoining streets to see how they can more
efficiently handle visitor arrivals and departures, coordinated with land
side services
8.2.10: To improve traffic congestion and safety in the vicinity of ferry terminals.
a.Study alternatives to improve vehicle flow along roadways servicing ferry
terminals.
b.Study alternatives to improve access to ferry terminals for shuttles, taxis,
bicycles, and pedestrians
111
“The most important tool in shaping Nantucket’s future is the development of a plan for
the growth of the Island. Nantucket is a very attractive place to live. If it is to continue to
be attractive, we must develop a plan to preserve the qualities that are important to all of
us. The development plan must identify the areas of sensitive, environmental, aesthetic,
and historic importance, and it must also designate methods for protecting these
interests. At the same time, the plan must provide for a healthy economy and livelihood
for our citizens without destroying the land we love.”
“That plan for development must be viable and politically acceptable and must meet the
needs of our citizens. It must not be a multi-volume report written by off-islanders that
sits on the shelf and never sees the light of day. This development plan must be written
by the citizens themselves. While experts can help with the technical aspects of such a
proposal, no expert can make the decisions which our form of government has left in the
hands of the people. A plan that is imposed from an Olympian height – whether that
height be known as Beacon Hill, Capital Hill, or the Ivory Tower of Academia – will never
work so well or be as readily accepted as one that is developed by Islanders themselves.
112
Such a plan must be developed before events make our decisions for us, and before
circumstances go beyond our control, forever changing the nature of our Island.”
– Growth Policy Study for the Town of Nantucket, prepared by Nantucket
Land
Council Defense Fund, Inc., June 1980, page 31
113
APPENDIX
A: Interactive Public Process-Warrant Articles 2006-2008
B: Survey & Ballot Questions/Results
C: CCP “Combing” Results
D: Public Comment Record
E: Maps 5-23: 18 Planning Areas
F: Housing Production Plan (HPP) (update in progress)
G: Nantucket Housing Needs Update, by John Ryan
H: Affordable Housing Units Built After 2002, by Kelly Reinsmith
I: Nantucket Historical Association Properties List (p. 51, Open Space and Recreation
Plan)
J: Nantucket Open Space and Recreation Plan (OSRP), updated August 2008
K: Pavement Management Program 2005, 2005 Final report by MATEC Engineering
and
Consultant
L: Regional Transportation Plan (RTP)
M: Priority Public Road Additions
N: Fiscal Year 2010 – 2019 Capital Plan
O: March 30, 2009 NP&EDC Review for Completeness
114
ACKNOWLWDGEMENTS
PLANNING BOARD:
Barry G. Rector, Chairman
Sylvia Howard, Vice-Chairman
Nathaniel Lowell
John McLaughlin
Linda Williams
John West, Alternate
Diane Coombs, Alternate
FORMER MEMBERS:
Donald Visco
Francis T. Spriggs
Charity Benz, Alternate
Jason Flannagan, Alternate
John Wagley, Alternate
NP&EDC:
Nathaniel Lowell, Chairman
Brian Chadwick, Vice-Chairman
John McLaughlin
Sylvia Howard
Barry G. Rector
Linda Williams
Jeff Willett
Andrew Bennett
Michael Kopko
Bertyl Johnson
Jack Gardner
Donald Visco
FORMER MEMBERS:
Francis T. Spriggs
David Gray
Aaron Marcavitch
Arch McColl
PLANNING OFFICE STAFF
Andrew Vorce, AICP, Director of Planning
Leslie Woodson Snell, AICP, Senior
Planner
T. Michael Burns, AICP, Transportation
Planner
Susan Bennet Witte, GRI, CRS, CCM,
Housing Specialist
Jeromette Hicks, Office Administrator
Catherine Ancero, Planning Board
Administrative Specialist
Venessa Moore, Planning Assistant
John Brescher, Zoning Board of Appeals
Administrator
FORMER STAFF:
Tom Broadrick, AICP, Land Use Planner
Sophie O’Neill, Intern
Lauren Sullivan, Intern
GIS COORDINATOR
Nathan Porter
BOARD OF SELECTMEN/COUNTY
COMMISSIONERS
2005–2009:
Rick Atherton
Doug Bennett
Brian Chadwick
Catherine Flanagan Stover
Michael Glowacki
Michael Kopko
Allen Reinhard
Patricia Roggeveen
Bruce Watts
Whiting Willauer
TOWN ADMINISTRATION
C. Elizabeth Gibson, Town Manager
Malachy Rice, Assistant Town Manager
Paul DeRensis, Esq., Town Counsel
Sarah Alger, Town Moderator
Tim Madden, State Representative, former
Legislative Liaison
DEPARTMENT HEADS:
Al Peterson, Airport Manager
Deborah Dilworth, Assessor
Bernard Bartlett, Building Commissioner
Linda Roberts, Director, Council on Aging
Jeff Willett, Director, Department of Public
Works
Constance E. Voges, Finance Director
Mark McDougall, Fire Chief
Richard Ray, Health Director
Mark Voigt, Administrator, Historic District
Commission
Patricia M. Perris, Human Resources
Director
Maryanne Worth, Coordinator, Council for
Human Services
115
Linda Rhodes, Information Technology
Manager
Eric Savetsky, Director, Nantucket Islands
Land Bank
Paula Leary, Director, Nantucket Regional
Transit Authority
Dave Fronzuto, Marine Superintendent
Pamela Meriam, Administrator, Our Island
Home
James P. Manchester, Park & Recreation
Director
William Pittman, Chief of Police
Jennifer H. Ferreira, Register of Deeds
Dr. Robert Pellicone, Superintendent of
Schools
Richard Bretschneider, Sheriff
Elizabeth M. Brown, CMMC, Tax Collector
Catherine Flanagan Stover, MMC, CMMC,
Town & County Clerk
Deborah J.W. Weiner, CMMT, Treasurer
Kate Hamilton-Pardee, Director, Visitor
Services
Robert L. Gardner, General Manager,
Wannacomet Water Company
NEIGHBORHOOD GROUPS WITH COMPLETED
AREA PLANS:
Madaket Conservation Association
Siasconset Association
Surfside Association (in progress)
Tom Nevers Association
ORGANIZATIONS:
Denby Real Estate
Inquirer & Mirror
Nantucket Independent
Nantucket Restaurant Association
Sustainable Nantucket
Nantucket Civic League
Nantucket Land Council
THANKS TO THE ORGANIZATIONS AND
INDIVIDUALS BELOW WHO OFFERED SPECIFIC
RECOMMENDATIONS DURING THE PUBLIC
COMMENT PERIOD:
Aaron Marcavitch
Edward Sanford
Wendy Watts
Jenn Erichsen
Nantucket Civic League
Jamie Ranney
Vanessa Emory
John Tiffany
Michelle Whelan/Sustainable Nantucket
Cormac Collier/Nantucket Land Council
Annie Mendelsen
Tom Middleton
Pam Lohmann
D. Anne Atherton
Steve Backus
Gene Mahon & Reggie Levine/Nantucket
Arts Council
Alexandra Welsh
CONSULTANTS
Jenny Garneau, Access Marketing
Edith Netter, Esq.
Arlene O’Reilly, Minds Eye Productions
COVER PHOTOGRAPH
Rob Benchley
WRITING CONSULTANT
Reema S. Sherry
SPECIAL THANKS TO THE CREATORS AND
CONTRIBUTORS OF THE NANTUCKET
COMPREHENSIVE COMMUNITY PLAN, FROM
WHICH MANY OF THESE GOALS, OBJECTIVES,
AND POLICIES HAVE BEEN GLEANED.