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Aug 1 3 1970 Abstract GUIDELINES FOR STATE INVOLVEMENT IN THE DEVELOPMENT OF NEW COMMUNITIES IN MASSACHUSETTS: TOWARD A STATE URBAN GROWTH POLICY by LAWRENCE ELLIOTT SUSSKIND B.A., Columbia University (1968) Submitted in Partial Fulfillment of the Requirements for the Degree of Master of City Planning at the MASSACHUSETTS INSTITUTE OF TECHNOLOGY June, 1970 Si g n a tu r e o f A ut h o r . -'. .,*- - - '- - ' - . .... Department of Urban Studies an in Jun , 197 Certified by . .......... ....... .. ... Thesis Supervisor Accepted by. ......... .... .......... Chairman, Departmental Committee on Graduate Students MASS. INST. rrC AUG 1 3 1970 ABSTRACT GUIDELINES FOR STATE INVOLVEMENT IN THE DEVELOPMENT OF NEW COMMUNITIES IN MASSACHUSETTS: TOWARD A STATE URBAN GROWTH POLICY by Lawrence El 1iott Susskind Submitted to the Department of Urban Studies and Planning on June 4, 1970 in partial fulfillment of the requirements for the degree of Master of City Planning. This thesis is concerned with establishing guidelines for state involvement in the development of new communities in Massachusetts. State planning for urban growth, specifically state involvement in the planning and development of new communities must be undertaken within a systematic and carefully defined intergovernmental frame- work. State policies and plans expressed in the form of public works, the allocation of resources, the use of taxing and borrowing powers, the development of transportation linkages and the sum total of all actions taken by various state agencies can "make or break" new community development in the Commonwealth. At present no state policy exists which can reconcile the compet- ing interests which play a role in directing urban growth in the Commonwealth: 1) the developers worried about their ability to con- trol, program, and profit from urban development, 2) the residents of urbanizing areas concerned about state intervention in local deci- sions relative to community and environmental development, and 3) the wider regional interests concerned about the quality, scope and phas- ing of development. Chapter I offers a definition of new communities and establishes the theoretical rationale for the development of new communities in metropolitan urban areas as part of a state urban growth policy. Chapter 11 measures the potential for the development of new communi- ties of approximately 50,000 persons each throughout Massachusetts, and indicates those areas which are ripe for such development. Chapter III examines three alternative new community development strategies indicating the political and financial feasibility as well as the public benefits of each strategy. Chapter IV concludes with a ii discussion of alternative incentive-control systems for guiding urban growth, with an outline for an intergovernmental planning- implementation framework for new community development and a series of questions which need to be considered by state offi- cials and the public at large prior to the implementation of a state program for new community development. Thesis Supervisor: John T. Howard Title: Professor of Urban Studies and Planning iii Acknowledgments There are several people to whom I owe special thanks for their interest and assistance in the preparation of this thesis. Professor John Howard, Professor Aaron Fleisher, Professor Lloyd Rodwin, Mr. Alexander Ganz, Professor Kevin Lynch, and Professor William Doebele all helped to focus my thinking and research either by offering constructive criticisms of earlier drafts of parts of this thesis or by pointing out new sources of informa- tion or new ways of approaching important issues. Dr. Constance Williams of the Massachusetts Department of Community Affairs, Mr. Regis Harrington of the Massachusetts Department of Commerce and Development, and Mr. James Powers, of the Massachusetts Legislative Research Bureau provided me with valuable insights into the workings of Massachusetts government. To my colleagues Steven Browning, Matthew Hobbs, and Thomas Nutt, with whom I spent many hours discussing and arguing the problems and merits of new community development, I am especially grateful. iv TABLE OF CONTENTS Page ABSTRACT.................................................... ii ACKNOWLEDGMENTS................................................ iv TABLE OF CONTENTS.............................................. v LIST OF CHARTS................................................. viii LIST OF TABLES............................................ ..... ix LIST OF MAPS................................................... xi INTRODUCTION The Role of State Government in Guiding Urban Growth ...... 1 Options for State Involvement in the Urban Development Process.................................. ............. 5 Footnotes................................................ 12 CHAPTER I Introduction ............................................. 16 Major Problems of Planning and Developing A New Community. 18 Recent Proposals Calling for the Development of New Communities in the New England Area .................... 30 New Community Development in the Metropolitan Area: "The Growth Point Theory"............................... 32 New Communities and the Planned Expansion of Existing Towns.................................................. 38 New Communities As An Alternative to Suburban Sprawl...... 45 The Role of State Government in New Community Development..........................-------------------53 Considerations for State Involvement in Private Efforts to Build New Communities................................ 54 Footnotes........................----------------------.61 v TABLE OF CONTENTS (continued) Page CHAPTER II Introduction.............................................. 68 The Regional Distribution of Economic Activity in Massachusetts........................................... 72 Data Analysis............................................. 93 The Process of Selecting Sites for New Community Development.......................................... .. 95 Conclusions...............................................110 Footnotes.................................................114 CHAPTER III Introduction...................................... ......--118 Strategy #1 Providing Regional Planning Agencies with the Power to Act as Industrial and Economic Development Authorities............................123 Strategy #2 Providing for the Creation of a State Chartered, Non-Profit New Community Development Corporation...128 Strategy #3 Providing for the Establishment of New Community Development Districts....................---......132 Conclusions.............................................-- 141 Footnotes...............................................-- 144 CHAPTER IV Introduction................................ ............--152 Incentive-Control Systems for Land Use Guidance...........153 An Intergovernmental Planning Framework for New Community Development...................................161 Postscript: Questions That Remain to be Answered.........164 Footnotes............................................... 166 vi TABLE OF CONTENTS (continued) Page APPENDIX A A New Community of 50,000 People........................ 169 APPENDIX B Score on Set...........................................--- 173 APPENDIX C Weight on Set........................................... 175 APPENDIX D Proposed Legislation - An Act Providing for the Establishment of Northern Middlesex Area Commission As A Regional Pla nning and Economic Development District......... ----- ---- . -- .------- .--... 176 APPENDIX E The Legal Basis for Regional Planning in Massachusetts.... 185 APPENDIX F Bibliography...........................................-- - 191 vii LIST OF CHARTS Page 1. LISTING OF STATE ECONOMIC AREAS..........................74 II. LISTING OF PLANNING REGIONS............................. 76 I1 . SMSA's WITH POPULATIONS (1960).......................... 78 IV. TOWNS SELECTED FOR ANALYSIS IN ROUND TWO................ 102 V. RANKING OF POTENTIAL SITES FOR NEW COMMUNITY DEVELOPMENT........................................... 109 VI. ALTERNATIVE NEW COMMUNITY DEVELOPMENT STRATEGIES........ 139 viii LIST OF TABLES Page 1.1 RESIDENT POPULATION.............. 85 1.2 PERSONAL INCOME.................. 85 1.3 PER CAPITA PERSONAL INCOME....... 85 1.4 TOTAL CIVILIAN EMPLOYMENT........ 86 1.4.A. NONAGRICULTURAL EMPLOYMENT....... 86 1.4.B. COMMODITY PRODUCING EMPLOYMENT... ............. 86 1.4.C. NON COMMODITY PRODUCING EMPLOYMENT........... 87 1.4.D. AGRICULTURE, FORESTRY AND FISHERI ES EMPLOYMENT 87 1.4.F. CONSTRUCTION EMPLOYMENT.......... 87 1.4.G. MANUFACTURING EMPLOYMENT......... 88 1.4.H. TRANSPORTATION, COMMUNICATION, AND PUBLIC UTILITIES EMPLOYMENT..................... 88 1.4.1. WHOLESALE AND RETAIL TRADE EMPLOYMENT...... 88 1.4.J. FINANCE, INSURANCE, AND REAL ESTATE EMPLOYM ENT.. 89 1.4.K. SERVICES EMPLOYMENT........................ 89 1.4.L. GOVERNMENT EMPLOYMENT.....................- 89 2.1 AVERAGE ANNUAL RATE OF GROWTH OF RESIDENT POPULATION............................. 90 2.2 AVERAGE ANNUAL RATE OF GROWTH OF PERSONAL INCOME...... 90 2.3 AVERAGE ANNUAL RATE OF GROWTH OF PER CAPITA PERSONAL INCOME............. ................ ...... 90 2.4 AVERAGE ANNUAL RATE OF GROWTH OF TOTAL CIVILIAN EMPLOYMENT.................. .... ... - ........... 91 ix LIST OF TABLES (continued) Page 2.4.A AVERAGE ANNUAL RATE OF GROWTH OF NONAGRICULTURAL EMPLOYMENT.......................................... 91 3.1 METROPOLITAN SHARES OF RESIDENT POPULATION............ 91 3.2 METROPOLITAN SHARES OF PERSONAL
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