LEOMINSTER — The Leominster City Council convened on May 12 in a packed chamber as residents and area officials debated Zoning Petition 41-25, a citizen-led initiative that seeks to ban horse and dog racing—including all forms of betting—within city limits.
The petition, filed by Lisa Nugent of Beth Avenue, would prohibit racetracks and related gambling operations in all zoning districts in Leominster.
“There is an abundant amount of verifiable data that substantiates the ample travesties and downsides of the thoroughbred horse racing industry and its associated gambling,” Nugent said. “Our city is fortunate to be in a position not to take such risks and to stoop to such ethical lows to remain viable.”
Nugent also acknowledged that if both Petitions 41-25 and 47-25— a proposal backed by Baystate Racing to establish a fairgrounds overlay district —pass, the latter could supersede the racing ban, but stressed, “If Leominster had already had an ordinance in place like that of 41-25, Baystate Racing might not have even considered Leominster to begin with. Passing 41-25 now could help to insulate us from similar proposals in the future. Given what goes into combating such a proposal this is something we would like very much to avoid.”
Nugent’s petition comes amid concern over a proposal by Baystate Racing LLC and the Leominster-based Whitney Companies to redevelop the capped landfill off Mechanic Street into a seasonal thoroughbred racetrack and entertainment complex. Plans include off-track betting, a sports bar, event venue, and restaurant. The developers claim the project would generate more than $1 million in annual tax revenue and over 300 jobs.
Residents who spoke during the hearing expressed strong opposition to the proposed development.
Natalie Higgins of Elm Street urged the council to support Petition 41-25, calling it “important…for Leominster to take a stand and just ban animal racing and wagering within our municipality.” She continued, “I’m really disappointed that this petition has been delayed in the process to be taken up with the other petition, because this could kind of settle the matter once and for all and in the future.”
Higgins cited local efforts across Massachusetts to protect animal welfare, including 16 communities cracking down on puppy mills, eight banning the sale of new fur, and 15 prohibiting exotic animals in traveling shows, the latter of which led to a statewide ban that went into effect on January 1, 2025. “We continue to see communities step up time and time again to say this doesn’t belong in our town or our city,” she said. “And I think Leominster has a great opportunity to be able to do that and also lead the way, making sure that horse racing ends like dog racing has ended in Massachusetts.”
Peter Haigis, also of Elm Street, supported Petition 41-25 and argued against the economic viability of horse racing. Haigis acknowledged concerns raised by others about the project’s location, emphasizing issues related to public health, ecology, conservation, and environmental impact. He stressed that despite recent attention surrounding events like the Kentucky Derby, the horse racing industry was in decline globally, highlighting that “just between 2020 and 2025 it’s had a compound annual growth rate of negative 3.4%.” Haigis noted this downward trend was driven primarily by younger audiences turning away due to animal abuse concerns, stating, “the industry is dying and that’s exponential.” He warned city officials that horse racing would not offer sustainable economic benefits: “What’s going to happen when this inevitably closes its doors in the not-too-distant future? It’s not helpful in any way.” Citing recent research by Mass Inc., Haigis added that even in-person sports betting venues, like those in Springfield and Plainridge, are “losing money,” disproving claims that such developments boost surrounding businesses. Haigis concluded, “I am in support of 41-25 and I hope that you’ll support it as well.”
Meanwhile, Gardner resident John Hochard described how Baystate Racing pursued two separate racetrack proposals in his city. He explained that the first attempt failed in 2023 because the proposed site was on protected land designated to safeguard Gardner’s water supply. In 2024, Baystate returned with a second plan for a facility at 827 Green Street, which was also rejected by the city.
“In Gardner, from the onset, many people felt betrayed and were hurt and angry at the city, mayor, city council, and Baystate Racing,” Hochard said. He described the cumulative toll of the public opposition effort as “extremely taxing,” saying it forced residents to juggle family responsibilities, work, and advocacy. “For myself, the Baystate horse racing proposal put a huge strain on my marriage, my small business, and my overall physical and mental well-being,” he said.
Hochard cautioned Leominster officials not to assume that defeating one proposal would end the matter. “Please don’t take for granted the risk of this coming back a second time in a different location like it did in Gardner,” he said.
Linda Jean Hall, a 20-year resident of North Street, voiced concern about quality of life. “Bringing in horse racing inevitably brings in gambling. Gambling inevitably leads to more crime—and will inevitably make Leominster an unsafe community to stay in,” she said. “I really like Leominster. I’d like to stay here, but that concerns me greatly.”
A resident of Fitchburg, identified as Ernie Stathis offered one of the few defenses of the project. “Look at the Kentucky Derby…the Belmont, they do a phenomenal job. Racing is only going to be one month here, six races, they say. It’s an entertainment center,” he said. “What’s it going to do for the surrounding area? Fitchburg is a little stagnant compared to Leominster. Clinton, Marlborough — all the surrounding towns — think about the bucks for tomorrow. First of all, to correct the situation with the landfill, they are going to put three feet of clay on top of it, preventing everything from coming up. What’s going to come out of this will be absolutely phenomenal for the area. You’ve got to think of tomorrow, not just today.”
During the public forum on Petition 47-25, Caitlyn Smith, a resident of Prospect Street who works as a teacher, urged the council to consider the broad implications of the developer-backed zoning overlay. Smith described the proposed fairgrounds overlay district as permitting a wide array of large-scale developments with minimal limitations.
“In case anyone present in the audience has not had a chance to read said petition, I will share a few details,” Smith said. “Among other things, the zoning overlay would define their sports bar as essentially a small casino that also has off-track betting and simulcasting. They would also be able to build an apartment block or a large hotel. There are no setbacks for retaining walls or buildings, no height restrictions of any kind on buildings or structures, and they would be allowed to have amplified noise and permanent outdoor lighting.”
Smith added, “Their HCA [Host Community Agreement] specifically says that they would be raising the height of the entire landfill to 360 feet—20 feet higher than it is now and an average of 10 feet higher than Mechanic Street. This would be a tremendous eyesore that would severely impact the quality of life for residents in the area.”
She also alleged that Baystate Racing or an affiliated group hired college students to collect signatures for the Petition 47-25 initiative. “These students were allegedly being paid $22.50 per hour plus $1 per signature,” Smith said, noting they were observed soliciting support outside grocery stores in the region. “They seemed to have little idea of what the fairgrounds even is or how to explain it,” she said. “With one young man allegedly telling a resident that the city will remove the landfill waste after the location was approved.” Smith warned, “If they are making $1 by telling a stranger that the City of Leominster would fully remediate the site—a project that could easily cost a billion dollars—who knows what else they promised to get 1,300 people to sign this petition?”
Fitchburg City Councilor Sally Cragin spoke during the public forum on Petition 47-25, explaining that she attended at the request of several Leominster residents. “This fairgrounds project is dismal,” she said. “The folks who are proposing it do not have a track record of achieving this kind of success that they are promising in full-page ads in the Sentinel.” She also warned that the site, with its vent pipes that go all the way down into the swamp, was unsuitable for development. “I just don’t see how you can develop something—I don’t see how you guys can do it without creating cancer clusters, without really putting your residents in danger—and my grandchildren, your grandchildren, your great-great-to-the-seventh-power grandchildren,” Cragin said.
Following the conclusion of public testimony, Council President Mark Bodanza recommended that Zoning Petition 47-25—a proposal backed by Baystate Racing to establish a fairgrounds overlay district—be given further time. The council unanimously approved the motion. Bodanza then moved to continue the public hearing to June 23 at 6:30 p.m.
Earlier in the meeting, Councilor-at-Large Susan Chalifoux Zephir, chairperson of the Legal Affairs Committee, explained that because both Petition 47-25 and Petition 41-25 involve zoning, they would be taken up by the Planning Board. Zephir stated the board would open and close its hearing on Petition 41-25 on May 19, then add it to the June 16 agenda alongside Petition 47-25 to consolidate public comment.
No vote was taken on Petition 41-25 at the May 12 meeting. The City Council continued the public hearing to its next meeting, scheduled for May 27.
Other items addressed at the meeting:
Cultural Commission Appointment:
Denise Sutton, general manager of WLPZ 95.1 FM, the city’s radio station, was unanimously appointed to the Leominster Cultural Commission.
Utility Pole Installation:
The council unanimously approved Petition 42-25 by National Grid and Verizon to install one jointly owned 35-foot Class 3 utility pole and anchor on Tory Circle, following Councilor Brandon Robbins’ summary of the proposal and confirmation from a National Grid representative that a concerned resident’s issue had been addressed.
City Wage Increases:
Ordinances C-54 and C-55, which update the city’s compensation tables, were unanimously adopted. C-54 reflects salary and wage adjustments for non-union employees from FY25 through FY27, while C-55 covers the Fire Department (FY25–FY27) and Department of Public Works (FY25–FY27). Councilors noted the ordinances include nine pages of tables outlining increases across various job categories.
Appropriations:
The council gave regular course to the following appropriation requests submitted by Mayor Mazzarella:
- $7,136,027 to the Fiscal Year 2026 Sewer Department budget, to be raised/offset by FY26 receipts (C-79)
- $6,919,906 to the Fiscal Year 2026 Water Department budget, to be raised/offset by FY26 receipts (C-80)
- $60,000 to the Fire Department expense account (C-78)
- $50,000 to the Police Department overtime account (C-77)
- $25,000 to the library’s operating account, transferred from the library’s personnel budget (C-83)
- $21,600 to the Assessing Valuation expense account, transferred from the excess and deficiency account (C-66)
- $15,000 to the library’s operating account (C-85)
- $7,500 to the Department of Public Works capital account for a road safety analysis (C-75)
- $5,000 to the library’s operating account (C-84)
- Request to establish a donation account for the All-American City Competition (C-76)
