Growth and Development Issues in a Small Town

The town of Raynham, Massachusetts, is a small community trying to cope with growth and development. As a member of the Planning Board for one year, I examined the methods and tools used to deal with the major issues raised and discussed in this paper. Recommendations as to restructuring governmental organization and zoning methodology are discussed.

LIST OF TABLES Page Transportation to Work Table I   6   Population  Table 11 8 Occupation by County Table Illa  10 Occupation by Percent of Residents Table lllb 11 Conunuting Patterns Table IV  12 Transportation to Work Table v   13 iii but the many laws, rules, and regulations governing the Board's actions were new. It was the introduction into the world of small town government that was particularly intriguing.
The reality of the situation 1n Raynham was evident innnediately. The small town of about 6,000 people that I had grown up in was now over 9,000 and the increased connnercial and housing development that accompanied the growth was evident. Raynham had always been a town of first-time home buyers and young families, and this is still the case. It remains suburban in nature but is facing issues typical of any growing connnunity. Some of the problems are compounded by environmental constraints and others by inefficient government.
The study of these issues and the methods that the town used to deal with them are presented here.
Three case studies are examined which illustrate the types of issues raised. Major issues discussed are low and moderate income housing, zoning, and environmental protection. The analysis and reconnnendations will be applicable to any small town experiencing similar problems. These issues have presented a new set of problems for this town with little growth management experience.
area of town with sewers, the commercial corridor along Rou t e 44. In addition, 76% of town residents receive public water through two districts, with the remainder of residen t s relying on private wells. Town water is obtained through underground wells.
Raynham residents are mainly professional white collar workers, with a relatively high level of education and moderate income (U.S. Census). Many residents moved to town because of its 4 Raynham operates with a budget surplus, 64.5% of its revenues coming from property taxes. Residents, typical of most people, would like to see property taxes lowered, and they feel some animosity toward the School Department and Police Department, who receive the bulk of town expenditures.
In past years, the School Department received whatever amount it requested in its budget, and there was little the town could change. However, a recent state law allows towns to scrutinize more closely and change items in the school budget. The Superintendent of Schools has traditionally been a powerful figure in town, and tensions may even increase over budget battles.
Peak school enrollment occurred in 1976-77 at 2,286 elementary and junior high school students attending five schools. High school students attend either the Bristol-Plymouth Regional Technical High School in Taunton or the Bridgewater-Raynham Regional High School in Bridgewater. The town pays a variable amount to each school district.
Along with the maJor highway networks through town, other transportation elements include bus service. Two bus routes pass through the town. The first route travels along Route 138 from Taunton to Boston several times daily, providing connnuter service and service to Raynham Park, the greyhound racing track. The second line operates along Route 44 from Taunton to Middleboro (and Plymouth during the surmner) and makes one stop in Raynham.
The Greater Attleboro-Taunton Regional Transit Authority (GATRA) operates local bus service in Taunton, and Raynham is eligible to join at any time.
However, there has not been sufficient interest, partially due to the fact that the majority of residents own two automobiles.
(2)  Raynham, throughout its history, has been a rural, quiet community.
However, this is changing, and the town is in a transition period which began in the 1960's. At this time, growth of housing and business began to impact on the environment and the image of the town. The problems have largely gone unsolved and have compounded in the ensuing years. Raynham is not alone as the population growth in the town is a regional phenomenon.

B. Growth in Southeastern Massachusetts
Growth in southeastern Massachusetts has been in evidence since at least communities. Neither one by itself is a good representation of the area as a whole, so they will be combined to give a more accurate picture of past and current conditions. Raynham is located on the border between the two in Bristol County.
Population growth since 1960 is shown below in Table II.     SRPEDD has been available for the preparation of plans and o t her studies since 1969. However, it was not utilized frequently until approximately seven years ago when growth pressures became more apparent. The town pays for SRPEDD's services, and rates are cheaper than those of private consultants.
Residents are generally apathetic toward most issues in town, a maJor problem than often shows up in lack of quorum for public meetings.
The Selectman form of government usually works effectively in a small town, but it has become increasingly cumbersome and inadequate to deal with the town's current problems. This is illustrated by driving Raynham's streets and surveying land uses. A planning board which meets every two weeks and has some professional expertise but few available tools cannot adequately deal with the types of issues being raised in Raynham today. As a member of the Planning Board for one year, it became apparent to me, and had already been apparent to other members, that its tools are inadequate no matter how well versed in planning practice a member is. It is also difficult for members t o be objective when they are also residents concerned with property values. A comprehensive approach in the guise of a full-time planner is one solution.
Continuity of land use planning and setting aside areas of town for specific types of development is a need that must be addressed. The Residential C zoning classification was instituted in 1984. It allows mobile home parks as well as any use permitted in Residential A zone. One area is currently zoned for this use.
There are approximately 1,350 acres of land zoned for Business, of which about twenty two percent is currently developed. Various uses are permitted in the Business district, including offices, any residential use with the exception of subdivisions, and businesses which do not manufacture goods sold on the same property. Parking requirements stipulate that a business must provide off-street parking equal to twice the floor area of the building.
Most Business zoned land is located along Routes 138 and 44, the latter being the most developed for these uses.
Uses permitted in an Industrial district include any business permitted in a Business district, and any manufacturing or industrial use provided that such a use does not provide a detriment to residents and tend to reduce property values. The town has zoned approximately 2,762 acres in this category, but only sixty acres are developed. Much of the land zoned industrial is located in areas of poor soils or wetlands, thus providing a roundabout method for preventing some industrial growth. Because a firm can be denied from locating in such an area, the town feels this insulates them from tremendous industrial growth.
Ten percent of the town land is zoned Farm and Forest, which allows the uses of any religious or educational institution, and any federal, state or local government use, plus those of farm and forest.
The Wetlands district encompasses nine percent of the towns's acreage and permits agricultural and horticultural uses, and detached one family dwellings with accessory buildings incidential to the growing of timber and crops.
Agricultural land must be five acres or more in size and comply with other state standards.
A small amount of land in town is zoned General Use, which is not listed in the zoning bylaws of the town. Although the Planning Board has made a concerted effort to zone all these areas for specific uses, voters have rejected some at town meetings. Any use is permitted in a General Use zone.  The subdivision consists of several streets designed with total disregard to natural topography and features such as large old trees and brooks. The plan called for bulldozing and leveling the site, thus destroying all natural amenities including a brook that would be contained in culverts underground.
Perhaps the developer has an easier job if he flattens the landscape, but the development would certainly be more attractive if mature trees were left in place. The destruction of topsoil and subsequent erosion were also major environmental issues. Profits for the developer could be increased if the subdivision offered amenities that others did not. However, the demand in Raynham is for moderate cost housing, which these units will satisfy, no matter what the landscaping.
Opposition to the proposal included the abutters. The majority were concerned with the leveling of topography. The homes already built were higher in elevation than plots next to them were to be after excavation. In fact, one abutter owned one half of a man-made steep hill in his backyard, but the plans called for the other half to be excavated. Also, access roads were shown at a lower elevation than an abutter's fence, thereby undermining the fence during construction. The plan had many rough edges because topography and site requirements had changed in the ten years that had passed. However, there was less opposition than is usual for such a large subdivision because abutters knew before moving in that more homes were planned.

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The developer was very conciliatory and unusually generous, meeting with each abutter to reach agreements and compromise on their differences. All came to formal agreements, thus eliminating a part of the opposition. The Planning Board approved the plan after the agreements were made and corrections made to conform with new zoning bylaws, such as increased corner lot size requirements and street width. Residents of the existing park were well organized and attended meetings en masse to vote in favor of the proposal. All testified that life in the park was idyllic, both socially and economically. Other town residents present at the meetings and hearings were generally against the idea of mobile home parks but became sold on the idea of zoning them in one area to prevent proliferation in various locations around town. In addition, many residents were in favor of having a place nearby where parents or grandparents could live when they retired.
The Planning Board recommended the zoning change at a town meeting after the public hearing process had ended. We, too, were sold on the idea of a special zoning category for mobile home parks, like Planned Unit Developments, or other special use classifications. At a special town meeting, the town voted for the Residential C zone and designated one area for the 29 classification, the parcel that George Bumilla wished to build upon.
One issue raised _ during the process was the legality of instituting a new type of zoning district and then specifically zoning one parcel for that land use, a parcel defined by property lines. Of course additional tracts could be zoned in the future, but in Raynham, most zoning changes are proposed by developers for one specific parcel, and are carried out in that manner. This has tended to weaken zoning as a planning tool and raises the issue of spot zoning. These are commonly the issues raised at public hearings when such proposals are discussed. The fall of property values is important to every homeowner, but perhaps more important to Raynham residents as many are first time homeowners and refugees from Taunton. Their point of view is easy to understand but may not be valid. There is no guarantee that values will not drop, but low income housing does not have to be an eyesore if designed well.
The impact on town services of more housing, particularly higher density development, may be adverse in the short run, but service delivery systems can be improved and upgraded. Although this may lead to higher taxes to support the increase, it is important to remember that all communities must share the responsibility for housing middle and low income families.
Water quality is a growing concern in Raynham. The poor quality at one main well in town forces Raynham to occasionally purchase water from the town of Bridgewater. Possible contamination from a nearby gas station has been studied and water purification equipment is now in place. Aquifer protection has also become increasingly important. Until these problems are solved or Raynham has a new, vaguely worded "buffer zone" bylaw that is an attempt to insulate residential areas from inconsistent land uses. A strip of land (no less than fifty feet) is required between new business use in any zoning district and a residential use or zone. There has been some controversy over this, residents complaining that it is not extensive enough, and developers complaining that they are being deprived the use of their land.
Unfortunately, the bylaw was copied from another town and implemented without Planning Board members or residents having a clear understanding of it. It was mainly enacted due to pressure from a group of residents who were impacted by conflicting zoning districts adjacent to each other.
Attitudes toward design review and aesthetic considerations may be more widely accepted in the town than in the past. One reason is that the town is visibly growing, and development where environmental sensitivity is not present are far more noticeable. Residents seem to be more concerned with environmental protection as well, because of increased growth pressures, and the general consciousness-raising in related fields. Once a town with large wooded areas, Raynham is now realizing that these areas are rapidly shrinking.
Zoning is used in Raynham as the major planning tool. For most towns, zoning does not solve perceived problems; unless the town or rural area is experiencing development pressures, land use is probably not a major problem.(8) However, in Raynham, land use is a major problem. Zoning as a planning tool in rural areas can be used more effectively than is currently being done in Raynham. 35 The most common phrase used in Planning Board meetings is that you don't want to deprive anyone the use of his land. This is one parameter of zoning Approved at town meeting, apparently few understood why certain areas were zoned for specific uses. It is this lack of understanding why certain districts exist where they do and the lack of a conceptual framework upon which to build and modify over time that permits such easy zoning change.
Since this is virtually the only planning tool used by the planners, they cannot be effective and strong enough as a body in land use planning.
In ;.._ \ --- Performance standards seem to be a better alternative to the rather flexible one described above. These involve a thorough analysis of the effects of a proposed development on the town's water supply, sewage system, fire protection, and environmental protection. It stipulates where specific types of uses should be located, such as conunercial and industrial areas. Any variance from the plan would be subject to strict scrutiny.
This would provide an added dimension to the current zoning system.
Presently, effects on the water supply, sewage system, and evironmental protection are only given a cursory discussion. A developer will state that impacts are minimal and the water district management is not routinely consulted in matters of individual homes, and even then is only asked an opinion. The Conservation Commission is only consulted in matters where infringement on possible wetlands or other protected areas are proposed. Therefore, a system where possible effects were documented and discussed at length may be what the town needs. It would involve few changes in government organizational structure. By specifying where certain uses may be located, the town can decide what land uses belong where. Performance standards will help insure that effects on the environment and town services are thoroughly investigated.
Many rural and suburban towns are now encountering development problems similar to Raynham's. The town is not alone, as several of the surrounding towns are dealing with the same problems. In Bridgewater, where zoning is strictly adhered to and zoning and land use changes are scrutinized, growth has been better controlled. The town of Middleboro has discussed hiring a full-time planner, and has tried to attract industry to its industrial parks.
In these towns, specification codes seem to work well. In Raynham, where the methodology is unclear, the designation of appropriate land uses has not succeeded. If performance codes were enacted and were understood, the town's chances of successfully handling growth would improve.
The housing issue is the most pressing one in Raynham today. As real estate prices climb, there will be more low and moderate income housing needed. Opposition voiced by residents wanting to maintain their neighborhood I status quo will not go away. "The saying, 'A man's home is his castle', implies that each man has the right to exclude anyone from his home.
Exercising this power does not mean placing the property rights of the occupant over the personal rights of those seeking entry."(13) Fears of rising crime, vandalism, taxes, and lowered property values must be dealt with. However, in Raynham, I see little hope of this in the near future. It will happen gradually over time. As more low and moderate income people enter the town, and they will, they will form linkages with those already there.
Eventually the community will exhibit an improved quality of life, because quality of life is linked to bonds formed with neighbors. I believe this will happen in Raynham, as it did in the 1960's when an influx of new residents caused tensions to rise among older residents. In time, bonds were formed and the community became less divided.
The process of forming linkages is easier when types of housing are compatible. It would be easier for neighbors of Spruce Woods to know their new neighbors if the housing was compatible. The apartment house solution for low and moderate income families among single family residences does not facilitate the formation of bonds. Since they would be less likely to meet during yardwork, for example, the only avenue left will be in a social context. Churches and schools provide such a forum. Perhaps an alternative 44 would be townhouse development which is more compatible with surrounding structures. If the town took the initiative and encouraged developers to build compatible low income housing, the results would be better than having various projects forced on them. However, the difficult procedure whereby Spruce Woods was turned down by the Board of Appeals will happen again. I think the town realizes by now, though, that they will have to accommodate low and moderate income housing in the future.
Design review procedures for subdivisions, and indeed for all development, could be instituted in Raynham. These, coupled with environmental review, a full-time planner, and a relaxed attitude toward low income housing would set Raynham on the right track toward controlling its inevitable growth. However, I don't realistically see all these happening in the near future. Design review procedures, environmental review and relaxed attitudes toward accomodating the poor are all in the future. The town seems headed in this direction already. A general distrust of town government may hinder the hiring of a planner for a number of years. It would be difficult to replace specification with performance codes or strengthen planning tools without a planner on board. I think that Raynham will be burned badly for not handling growth in a clear-cut systematic manner unless key decision makers take a stand and assume control.
For my part, I am glad that I spent the time on the Planning Board. I only hope that this interesting town can live up to its potential and develop into the community with a high quality of life that it imagines it is.