Townsend’s water superintendent has been ordered to pay $10,000 after the State Ethics Commission found he twice shared near-final plans for a multimillion-dollar water-main project with a local contractor before the job went out to bid. Ethics officials said the early access was an unwarranted privilege that gave the contractor an edge. The town later awarded that contractor the work for roughly $4.76 million.
State ethics commission issues decision
The State Ethics Commission issued a Decision and Order on April 8, 2026, granting the Enforcement Division’s motion for summary decision and wrapping up the adjudicatory proceeding against Superintendent David Vigeant, according to the State Ethics Commission. The release states that Vigeant has 30 days to file an appeal in Superior Court and that civil penalties totaling $10,000 were imposed. The ruling allows the commission to finalize its finding that Vigeant provided a competitive advantage to a prospective bidder before the project was publicly advertised.
How the state says the project was tipped
As reported by the Lowell Sun, Vigeant forwarded near-final plan drawings on Jan. 27, 2023, and again on Feb. 2, 2023, to contractor Gary Shepherd and to an employee of Shepherd’s companies, Shepco Inc. and Overall Directional Drilling, weeks before the bid solicitation went out. Shepco submitted a $4,756,421.71 bid on March 30, 2023, came in about $600,000 lower than the next bidder, and was awarded the contract on May 3, 2023, the paper reported. According to the commission, the early-access plans included notations about key bid dates and drilling locations that other bidders never saw.
Why the commission found a violation
In its written decision, the commission concluded that providing the plans only to Shepherd’s businesses conferred “an advantage worth at least $50,” which meets the regulatory threshold for “substantial value” and therefore violated G.L. c. 268A, the state conflict-of-interest law, according to the Decision and Order. The commission imposed $5,000 in civil penalties for each of the two violations, for a total of $10,000, but also noted there was no evidence Vigeant personally benefited financially. That conclusion helped shape the size of the penalty.
Vigeant, the town and local policy
Vigeant told the Lowell Sun he is innocent and is considering an appeal, arguing that his actions were in line with the town’s “Townsend-first” policy that prioritizes local contractors. Interim town administrator Kieran Meehan told the paper the town had no comment while Vigeant pursues his appeal rights. Town officials have not announced any administrative changes to procurement procedures while the legal process continues.
Broader fallout and other enforcement actions
The commission earlier issued an Order to Show Cause against Gary Shepherd in November 2025, alleging he contracted with the town while serving as fire chief, according to The Boston Globe. Shepherd’s companies were awarded multiple town contracts totaling more than $5 million, the Globe reported, and remain under separate scrutiny. Together, the two enforcement actions highlight the heightened attention on small-town contracting where municipal roles and private business interests can collide.
What’s next
With the Decision and Order now entered, the next question is whether Vigeant will appeal. While that 30-day clock runs, the commission’s ruling stands as the official finding. The case underscores how a seemingly technical step, such as who gets to see a set of plans and when, can trigger state ethics enforcement in communities that depend on a small pool of local contractors.
