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Comprehensive Plan Update
Section I
A Vision for Turner
Goals, Policies, Strategies
Future Land Use Plan
Regional Coordination Program
Capital Investment Plan
Revised November 23, 2005
Adopted
April 3, 2004
TABLE OF CONTENTS
Introduction................................................................................................................................... I-1
A Vision for Turner......................................................................................................................... I-2
Character and Special Places .............................................................................................. I-2
Future Growth.................................................................................................................... I-3
Appearance of Development............................................................................................... I-4
PLANNING AREA: Historic and Archaeological Resources ....................................................... I-5
PLANNING AREA: Economic Development ............................................................................. I-7
PLANNING AREA: Production Agriculture .............................................................................. I-10
PLANNING AREA: Public Services/Facilities............................................................................ I-13
PLANNING TOPIC: Outdoor Recreation.................................................................................. I-16
PLANNING TOPIC: Transportation/Roadway System............................................................... I-18
PLANNING AREA: Affordable Housing................................................................................... I-21
PLANNING AREA: Natural Resources .................................................................................... I-24
PLANNING AREA: Rare, Endangered and Significant Natural Features.................................... I-33
PLANNING AREA: Scenic Resources..................................................................................... I-35
PLANNING TOPIC: Land Use/Development Patterns ............................................................... I-36
FUTURE LAND USE PLAN .................................................................................................. I-4445
Purpose........................................................................................................................ I-4445
Implementation............................................................................................................. I-4445
Future Land Use Plan................................................................................................... I-4645
Special Protection Areas............................................................................................... I-4647
Resource Protection Areas................................................................................................ I-46
Village Area.................................................................................................................. I-4748
General Residential Area I............................................................................................. I-4748
General Residential Area II ........................................................................................... I-4748
Rural Area I.................................................................................................................. I-4748
Critical Rural Area II..................................................................................................... I-4849
Shoreland Area............................................................................................................. I-4849
Commercial Area I ....................................................................................................... I-4849
Commerical Area II.......................................................................................................... I-48
Agricultural/Industrial Area............................................................................................ I-4950
PLANNING AREA: Regional Coordination........................................................................... I-5152
CAPITAL INVESTMENT PLAN ........................................................................................... I-5455
Introduction.................................................................................................................. I-5455
Capital Improvements Financing.................................................................................... I-5657
Low Interest Loans....................................................................................................... I-5658
Capital Investment Plan Implementation......................................................................... I-5758
Policy.......................................................................................................................... I-5758
Implementation Strategy................................................................................................ I-5758
PLANNING AREA: Hazard Mitigation................................................................................. I-5859
-Turner Comprehensive Plan Update- I-5
PLANNING AREA: Historic and Archaeological Resources
Turner’s Goal
To maintain the values of important historic, cultural and archaeological resources.
Overview
Turner’s history dates back to the mid-1700's when the Town was known as Sylvester-Canada. Since
the early days of the Town’s development, many of the historic resources have been destroyed or lost.
Although much of Turner’s history has been visually lost, there remain individual structures, sites and
areas which are remainders of the Town’s heritage. As the Town undergoes change, these remainders of
Turner’s beginnings and history is invaluable.
Approximately 80% of the respondents to the Turner Comprehensive Plan Survey identified historic sites
and areas as important or very important resources to maintain. Although not generally seen as important
as historic sites, known and yet to be discovered archaeological areas can provide details of our history.
The Town’s history is represented by its buildings, historical sites and archaeological resources.
If lost or diminished, Turner’s remaining historic values and significant archaeological sites will no longer
present the Town’s rich heritage.
Historic and Archaeological Policy
Pursuant to the goal, the historic and archaeological policies of the comprehensive plan are :
1. To encourage the maintenance of its historic buildings and sites.
2. To maintain and enhance the traditional characteristics of its three villages (Turner Village,
Turner Center and North Turner).
3. To support the Turner historical groups.
4. To minimize the impacts of development or other land use activities upon recognized historic
buildings and natural sites/areas.
5. To assure that before archaeological sites/areas are disturbed their values are fully assessed and
preserved where appropriate.
Implementation Strategies
A. Short-Term Activities-To accomplish the goal and policies, the Turner Community should undertake the
following within one to two years of plan adoption.
-Turner Comprehensive Plan Update- I-6
1. Apply to the Maine Historic Preservation Commission and/or other sources for a grant to assist
in a professional survey of historic features, sites and structures and to document them as either
of local significance or eligible for the National Register of Historic Places.
Responsibility: Selectmen/Historic Groups
2. The Town’s historical groups actively work with the owners of identified historic properties to
assess the feasibility and assist in the nomination of buildings and sites to the National & State
Register of Historic Buildings and Places.
Responsibility: Historic Groups
3. The Planning Board in development reviews consider the current provisions contained in the Site
Review Ordinance and Subdivision Ordinance, relating to Preservation and Enhancement of
Landscape and Relation of Proposed Buildings to Environment, to minimize the negative impacts
to identified documented historic buildings and sites.
Responsibility: Planning Board
4. Prepare and submit applications for Community Development Block Grant funds for all village
improvements.
Responsibility: Selectmen/Town Manager
5. The standards in the Zoning and Subdivision Ordinances that require that archaeological sites be
assessed and appropriately addressed before development takes place be required.
Responsibility: Planning Board
-Turner Comprehensive Plan Update- I-10
PLANNING AREA: Production Agriculture
Turner’s Goal
To encourage production agriculture.
Overview
Production agriculture is a significant element of Turner’s economy. In addition to its economic values, it has and
continues to present significant elements of Turner’s character.
Production Agriculture Policies
1. To encourage the presence of an agricultural land base for production agriculture.
2. To seek changes to the Maine Constitution and laws so that taxes are based on current use.
3. To minimize the conflicts between agriculture and adjacent land uses.
4. To encourage use of prime agricultural lands for farming.
5. To not pursue at this time strategies that mandate exclusive agricultural zones.
6. To develop farm enterprise districts that allow for farm diversification that maintains land for
farming.
7. To encourage the use of and participate in the granting of conservation easements and/or
purchase of development rights to maintain a production agricultural land base.
8. To explore a regional transfer of development rights program where rural agricultural areas
would be the sending areas and the urban city areas the receiving areas.
9. Maintain the economic value of land owned by those engaged in production agriculture to allow
its owner’s to finance ongoing farm operations.
Implementation Strategy
A. Short Term Activities- To accomplish the goals and policies, the Turner Community should undertake the
following within one to two years of Plan adoption.
1. Seek changes to laws that would allow the Town to develop an agricultural land tax assessment
program which encourages participation in the Farm & Open Space Tax Law by assessing land
lower if it is registered under the Farm & Open Space Tax Law.
Responsibility: Selectmen/Assessors
-Turner Comprehensive Plan Update- I-11
2. Reactivate the Select Committee on Production Agriculture to reexamine the feasibility of Turner
developing and funding its own purchase of development rights program. If such a program is
feasible, the Town should seek appropriate funding including a local long-term bond.
Responsibility: Selectmen Appoint Select Committee
3. Encourage agricultural landowners to participate in conservation easements and any other state
program for the purchase of development rights of farmland. Assist in the application/proposal
development and provide matching funds. Lobby at the state and federal level for the inclusion
of Turner’s farmland in any state and/or federal programs.
Responsibility: Selectmen/Conservation Commission
4. Amend local ordinance provisions to encourage the clustering of new subdivisions proposed for
agricultural areas through density bonuses or other techniques. Clustering should be done in such
a way as to maximize the potential for production agriculture and open space.
Responsibility: Planning Board
5. Amend local ordinance provisions to contain guidelines that provide a separation between new
non farm residential uses and existing agricultural land uses including well locations.
Responsibility: Planning Board
6. Work jointly with land trusts, in order to coordinate an approach to Purchase of Development
Rights and to take advantage of all possibilities for putting farmland under conservation easement.
Responsibility: Conservation Commission/Land Trusts
7. Amend local ordinance provisions to include farm enterprise uses that provide for diversified uses
on farms that are compatible with farms and rural locations.
Responsibility: Planning Board
8. Develop ordinance provisions that allow the sale of individual lots in Rural II areas of a minimum
of 5 acres or not more than 80,000 square feet, as long as additional 3 acre area is set a side
with conservation easements.
Responsibility: Planning Board
B. Mid-Term Activities-To accomplish the goals and policies, the Turner Community should undertake the
following within three to five years of plan adoption.
1. Investigate the merits of a regional Transfer of Development Rights program as a method to
-Turner Comprehensive Plan Update- I-39
4. Study the feasibility and location options for a business park.
Responsibility: Economic Development Committee
Residential Development
Residential development and its patterns have significant impact upon a community. Residential development
brings increased population, the need for improved or additional municipal services and generally greater municipal
expenditures to provide needed new services. The pattern or location and character of residential development is
a major component of how a community is perceived. Such development may damage temporarily or permanently
the environment or other sensitive areas.
Over the past ten years, Turner has experienced significant residential development growth. Over the period
between 1990 and 2001, a 31% growth rate in year round housing units has occurred. The majority of this
development has been low density development. While to date, much of this residential development has occurred
on newly constructed roads in wooded areas, recent trends have seen residential development onin the Rural
Area. The demand for new residential development is expected to remain high over the planning period. New tools
are needed in Turner to direct future residential development to appropriate locations while not overly devaluing
property where residential growth is not wanted.
In addition to the high rate of new residential development over the past several years, what has been much more
significant is the increase in the cost of housing. These increases include land cost which has largely been brought
about by outside market conditions over which Turner has little control upon. Current day housing costs are
beyond the financial capacity of many residents and potential residents.
Pursuant to the Goal, the residential development policies of the comprehensive plan are:
1. That over the next 10 years all 60% of new residential development will take place outside of the
critical rural areasin Growth Areas.
2. To direct new residential development to those areas where municipal services can be the most
efficiently provided.
3. To assure that new residential development is located on or served by roads that have the
capacity to handle new traffic generated by such development.
4 To direct new residential development in such a manner that it will not conflict with production
agriculture and other critical rural uses areas.
5. That when new residential development is to be located along existing public roads shared
access points be maximized.
-Turner Comprehensive Plan Update- I-40
6. It is a policy of the Town To provide for innovative residential development techniques that will
include a Density Transfer Program that would conserve land, significant natural areas and
reduce construction costs.
7. To provide for a variety of housing and tenure types to meet changing needs of housing
consumers.
8. To assure that new residential development minimizes impacts upon the natural environment.
9. To require the consideration of clustering of new residential development in prime agricultural and
other critical rural areas.
10. To consider varying lot sizes as part of an overall program to conserve land resources.
11. To allow for mobile home park development in environmentally suitable areas.
12. To provide for mobile home park development in those areas where municipal services and
roads are adequate to provide such services to that type of development.
13. To maintain the economic and social values of residential areas.
14. To maintain, upgrade and expand where appropriate the three traditional villages.
15. That residential development does not diminish the scenic characteristics of ridge lines, hill sides
and vistas.
16. To manage the rate of residential growth so that it does not over burden municipal service
delivery
Implementation Strategy
A. Short Term Activities- To accomplish the goals and policies, the Turner community should undertake the
following within one to two years from plan adoption.
1. Require, when deemed necessary, subdivision applicant’s to conduct a traffic analysis as part of
their development application.
Responsibility: Planning Board
2. Seek assistance to assess the feasibility and development of an impact fee ordinance for road
improvements necessitated by residential development.
Responsibility: Planning Board
-Turner Comprehensive Plan Update- I-42
Responsibility: Planning Board
10. Encourage the use of common driveways in the Rural Area where lots will be accessed by off-site
public streets.
Responsibility: Planning Board
11. In January of each year, assess the rate and location of residential development for the average of
the previous 5 years to determine if 60% of growth is occurring in Growth Areas. Based on the
rate and location of residential development, prepare develop options to meet the 60% goal.
These will include but will not be limited to changes in Growth and Rural Areas, a deferential
residential growth cap ordinance and/or ordinance which limits the amount residential
development.
Responsibility: Planning Board
12. Amend the Zoning and Subdivision Ordinances to require a buffer between new residential
development and agricultural uses.
Responsibility: Planning Board
13. Develop a Density Transfer Program (DTP) that will provide for the transfer of development
density rights from the Critical Rural I and II Areas to the General Residential I and II, Village and
Rural Areas or out of town. The Density Transfer Program components will include the following:
A Densities in the General Residential Areas I and II could be increased by 50% provided
that density transfers were purchased from willing owners of land in Critical Rural I and II
Areas.
B The uses of land from which density transfers are purchased will be limited to agricultural,
forestry or open space through deed restrictions and/or covenants except when
conservation type easements allow for other uses.
C. The minimum land required to be purchased in the Critical Rural I and II Areas as part of
a density transfers will be 20 acres.
D. The areas of wetlands as defined by shoreland zoning standards will not be counted in the
density transfer program.
E. A Density Transfer Program Committee will be appointed by the selectmen that will
develop the program and assist landowners and developers meet the objectives of the
Density Transfer Program.
Responsibility: Density Transfer Program Committee
Forest Land
-Turner Comprehensive Plan Update- I-46
predicted growth and development and has identified each area as a growth area, rural area or critical rural area
for purposes of the State Growth Management Act..
Special Protection Areas (These areas are located in Growth & Rural Areas)
Certain areas within Turner warrant special consideration due to their likelihood of degradation as the result of
various land use activities. Land use activities within these areas require stricter regulation than in other areas or, in
some circumstances, prohibition. These areas include:
Significant groundwater supply areas/sand and gravel aquifers: These areas, because of the potential for
degradation and/or contamination, require new development or redevelopment to take safeguards to
minimize potential degradation. Performance standards will protect these water resources.
Watersheds: The land area which drains to a pond or watershed, directly affects the quality of that pond’s
water. Development within watersheds will be regulated to minimize water quality degradation as a result
of erosion, sedimentation and phosphorus.
Critical wildlife habitats including travel corridors: These areas will be maintained through development
standards that minimizes detrimental alteration to critical areas.
Wetlands: Forested and non-forested wetlands of 10 acres and larger and not rated, or rated as low
wildlife value, will be protected by shoreland zoning standards. Other wetlands, through standards
contained in the zoning and subdivision ordinances, should be conserved to maintain their resource values
and functions.
Resource Protection Areas (Rural Areas)
Turner has many areas of natural resources associated with its streams, rivers and wetland areas that warrant
special consideration due to their likelihood of degradation as the result of various land use activities. Land use
activities within these areas will also require stricter regulation than in other areas or, in some circumstances,
prohibition. These areas include:
Floodplains: The land within the 100-year floodplain will be placed in a resource protection district which
prohibits new structural development except in areas that are already developed.
Wetlands: Non-forested wetlands of 10 acres and larger, as mapped by the U.S. Fish and Wildlife
Service, and the areas within 250 feet of their upland edge that are identified as having important wildlife
values by the Maine Department of Inland Fisheries and Wildlife, will be designated as resource protection
areas.
Androscoggin and Nezinscot Rivers and Gulf Island Pond shorelines and land purchased by the Land for
Maine’s Future Fund: These areas require regulation so that future development does not diminish the
area’s natural values.
-Turner Comprehensive Plan Update- I-47
Steep Slopes: Areas of two or more contiguous acres with sustained slopes of 20% or greater: Through
development standards, structural development will be prohibited.
Village Area (Growth Area)
These areas include the three traditional village areas, Turner Village, Turner Center and North Turner and areas
for expansion. It is a major focus of the comprehensive plan to maintain and improve the vitality of these villages.
A mixture of land use and development activity currently exists including commercial, business, services, residential
and public and semi-public. This mixture of uses should continue into the future. Development regulations should
be flexible to provide for a continuation of traditional village character. Density requirements should be flexible and
depending, on soil conditions range from 20,000 to 40,000 per unit or structure with frontages and setbacks
reflective of current development.
General Residential Area I (Growth Area)
General Residential Area I is located where the greatest densities of residential development currently exist or are
appropriate for this type of development at such densities. Residential development should be medium high density
(one dwelling per 40,000 sq. ft. with the exception of mobile home parks). The area should be primarily
residential however, other land uses appropriate and compatible with residential uses should be permitted. These
include public and semi-public uses and commercial uses associated with residential areas and mobile home parks.
General Residential Area II (Growth Area)
General Residential Area II is located where residential development currently exist or are appropriate for this type
of development at such densities. Residential development should be medium density (one dwelling per 80,000
sq. ft.) The area should be primarily residential, except mobile home parks. Other land uses appropriate and
compatible with residential uses should be permitted. These include public and semi-public uses and commercial
uses associated with residential areas.
Rural Area I (Rural Area)
The Rural I area comprises a significant land area in Turner. The purpose of this area is to maintain a rural
character of the town including agricultural and forest lands. Portions of these areas are served by road systems
not designed for high traffic volumes. Residential development should be low medium density (less than one
dwelling per 80,000 square feet) and not conflict with rural uses including agriculture and commercial forestry.
Building envelopes should contain a minimum of 20,000 square feet of land area which does not include
floodplains, slopes greater than 20 percent or wetlands as defined in the Natural Resource Protection Act.
Development regulations should encourage residential development to occur on existing or newly constructed
interior roads. Also, where driveways will enter off-site public streets, common driveways should be required.
Clustering of residential development should be encouraged through flexible lot standards and road frontage
reductions and other techniques, with the undeveloped land remaining available for agriculture or other open space
uses. Land uses requiring rural locations and land use compatible with rural areas that include natural resourcebased
business, recreation, public and semi public, are appropriate for this area.
-Turner Comprehensive Plan Update- I-48
Rural Area II (Rural Area)
The Rural II areas are locations in Turner that are not well suited for development. They are not well suited for
development because of natural resource values that include wildlife habitat and wetlands, physical characteristics
that include steep slopes and soils not well suited to development, adjacency to large undeveloped tracts of land,
lack of accessability by public roads, areas where new public roads could result in significant public expenditures
and critical lake watersheds. These factors make the Rural II areas only suitable for new development at low
densities. Lots created outside of subdivision approvals would include a minimum of 5 acres when suitable private
road access is available. Lot densities for residential subdivisions, in these areas, shall be a minimum of one
dwelling per 5 acres and no new public roads shall be created. Clustering of residential development shall be
required with flexible lot standards, including density bonuses. Land uses compatible with remote rural areas that
include natural resource-based business, saw mills, recreational business, campgrounds, sporting camps or remote
residential homes are appropriate for this area.
Shoreland Area (Rural Area)
Shoreland areas are located along the shores of surface waters and upland edges of freshwater wetlands of 10
acres or more that do not fall under Resource Protection areas or and other land use categoriesSpecial Protection
areas. These areas extend 250 feet back from the normal high water mark. Residential uses are the primary land
use; however, other land use activities generally associated with shoreland settings may also be allowed.
Development in these areas must take under consideration its shoreland setting, and the need to maintain shoreland
and water quality factors. Lot size should not be less than 80,000 square feet and 250 feet of shore frontage.
Commercial Area I (Growth Area)
This area is an important element of the land use plan with its purpose to provide primary commercial development
space. Much of the area is adjacent to Route 4 and thus development must be undertaken in a manner that will not
conflict with its traffic carrying function. In addition, Route 4 serves as the gateway to Turner and future
development should enhance not detract from Turner’s valued characteristics. It is intended that development be
regulated to avoid the creation of a commercial strip through requiring “planned” commercial development and
limiting curb cuts to Route 4. Appropriate uses include commercial, services, and light manufacturing. and with
accessory residential uses.
The commercial area is divided into two subdistricts: primary commercialCommercial I areas s and secondary
commercial areas. Primary areas exhibit suitable site considerations. Development in these areas should have a
minimum lot area of 40,000 sq.ft. with maximum lot coverage ratios not to exceed 6075%.
Commercial Area II (Growth Area)
Much of this area is adjacent to Route 4 and is also adjacent to Resource Protection Areas along Route 4. With
Route 4 access, it is suitable for commercial development, but that development should not conflict with the natural
resource protection areas or the traffic carrying function of Route 4. Development should be regulated to avoid
the creation of a commercial strip through requiring “planned” commercial development and limiting curb cuts to
-Turner Comprehensive Plan Update- I-49
Route 4. Appropriate uses include commercial, services, and light manufacturing with accessory residential uses.
Secondary commercialThe Commercial II areas exhibit natural constraints to development or prohibited traffic
safety limitations. Development in these locations require stricter regulation and should be allowed only as a
conditional use. Lot size should be a minimum of 80,000 sq.ft. with maximum lot coverage ratios not to exceed
5060%.
Agricultural/Industrial Area
This area is located in the vicinity of the Plains Road and includes the DeCoster Egg Farm operations. Found here
are egg production, processing, shipping facilities and fleet maintenance. This area is suitable for industrial,
manufacturing, warehousing and other businesses that can coexist with egg production and processing. New
residential development except employee housing will not be permitted in this area. These uses are allowable
provided that safeguards are maintained to minimize degradation to the sand and gravel aquifer which underlies this
area. Lot sizes should not be based on area to be covered by structures, outside storage and parking. Maximum
lot coverage ratios should not to exceed 75% if it can be shown that groundwater resources will be protected.
AuburnRd
UpperSt
LowerSt
PlainsRd
County Rd
FishSt
FernSt
NorthParish Rd
CobbRd
EastHebron Rd
Howes Corner Rd
BuckfieldRd
BeanSt
HarlowHillRd
Center BridgeRd
General TurnerHillRd
Pleasant PondRd
Turner CenterRd
SnellHillRd
Bear PondRd
MainSt
Conant Rd
Little Wilson Pond Rd
WoodSt
WilsonHillRd
Pearl Rd
RickerHill Rd
Chase Rd
Tidswell Rd
BryantRd
PotatoRd
Bradford Rd
MancineRd
WestonRd
SouthLivermoreRd
TurkeyLn
HolbrookRd
Merrill MillsRd
School House HillRd
MasonRd
Poplar HillRd
NezinscotDr
BerryRd
BlakeRd
BoutinRd
TorreyHillRd
Pit Rd
Kenn ebec Trl
BeaverLn
WhiteBirch Dr
BaizleyRd
BettyRd
BackCoveDr
Poulin Ct
NaiadLn
MagnumDr
TownFarm Rd
AppleseedDr
Mill HillRd
Stone Rd
TyleeWy
Murray Rd
AbenakiWy
SandyBottom Rd
NorthShoreRd
Trask Rd
LoonLn
MartinStreamRd
LonePineRd
BelisleRd
Matthews Wy
OrchardWy
DumpRd
Sable Dr
Alder Rd
North MainSt
Dow FarmRd
YoungRd
BlanchardRd
HicksonDr
AllenRd
MalloyRd
HoodDr
ChurchSt
Highland Av
NorthRiverRd
BennettRd
HeikenDr
GarfieldRd
StaplesRd
AspenWy
PolandRd
IrishRd
McLaughlinRd
Airport Rd
Brookfield Ests
Robinson Rd
AdeRd
Parker Wy
Scenic View Dr
Cranapple Ln
TalbotDr
Jennifer Dr
JohnsonHillRd
SeawardRd
RidgeRd
Fox Run
McCavityDr
Bog Rd
QuimbyRd
WildberryLn
TeagueAv
Anderson Rd
SkillingsCorner Rd
LibbyRd
Willard Dr
Dusty Rd
Snow Rd
KnightFarm Rd
St Pierre Cir
MoulinLn
Long Meadow Ln
HemlockHl
CanterburyLn
Lily Ln
RockyRd
BoulderRdg
Boothby Rd
FourWheelDr
HamDr
Business ParkWy
CloverLn
SouthRiverRd
MooselookDr
RichardsonRd
WillibenLn
ValleyViewDr
Spikehorn Wy
TomsRd
CedarLn
GammonRd
Dead EndRd
EmeraldAisle
Wilson Hill Rd
Turner, Maine
Resource Protection Area
Shoreland
Village Area
General Residential Area I
General Residential Area II
Rural Area I
Rural Area II
Commercial Area I
Commercial Area II
Agricultural/Industrial Area ì
2,000 0 2,000 4,000 6,000
Feet
Future Land
Use Plan
January 2006
Note: Special Protection Areas discussed in the Future Land Use Plan
Narrative, including significant groundwater supply areas/sand and
gravel aquifers, watersheds, critical wildlife habitats and non
shoreland zoned wetlands may be seen on the resource maps included
in the Inventory and Analysis Section of the Comprehensive Plan.