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MetroFuture recommends focusing growth in the region’s city, town, and village centers, and other areas where infrastructure and resources are available to support growth.  However, the plan also recognizes that some development will still occur on undeveloped “greenfields.”  Just as there are ways to “grow smart” in urban communities and town centers, there are ways to “grow smart” in the less developed, more rural portions of the region.  Clustered homes, well-designed roadways, and preserved open spaces can be combined to support housing development without homogenizing the region’s character.  

However, many current land use controls include requirements that are detrimental to the protection of natural resources and traditional New England character.  MetroFuture recommends changes to state and local zoning to discourage conventional subdivision designs, excessively wide roads, unregulated house lots along rural roads, and suburban-style development in truly rural areas. 

25)    Eliminate “Approval not Required” (ANR) process for land subdivision
The current “Approval not Required” exemption in the Massachusetts Subdivision Control Law allows landowners to create new lots without the approval of local authorities so long as those lots meet minimum frontage and area requirements.  This exemption leads to uncoordinated development along existing roadways, where planning boards have little authority to manage design and access; and opportunities for clustered homes are lost.  

Implementation steps to eliminate this exemption are included in (#1B—Modernize Zoning Tools). 

26)    Adopt true large lot zoning
Large lot zoning should be implemented in communities where there remain active agricultural and farming land uses.  By creating districts with minimum lot sizes of 20, 30 or 40 acres, rural communities can ensure that such parcels remain a sufficient size to sustain a farming or agricultural lifestyle.   

Because downzoning is often met with resistance by landowners concerned about the value of their property, it should be preceded by creation of a Transfer of Development Rights program that allows landowners to still recoup the existing value of their property.  With such a program in place, downzoning should not reduce the capacity of development rights that could be sold.  In other words, a 40-acre property downzoned from 1-acre zoning to 10-acre zoning, the owner could either create four house lots or sell development rights equal to 40 housing units.  

Implementation steps for this recommendation are included in (#1B: Modernize Planning and Development Tools.) 

27)    Implement environmentally-friendly roadway standards
A 2007 Pioneer Institute report concluded that “Many local road design standards represent “worst practices” in terms of landscape design, and some appear to be designed to increase the cost of subdivision for developers.” Pioneer’s research found that 20% of municipalities in Metro Boston require typical residential roads be 30 feet wide or more, enough for two travel lanes and two lanes of parking.    

These inappropriate standards result from blanket application of high volume/high speed road design criteria, overestimates of on-street parking demand, and the perception that wide streets result in faster emergency response times.   The resulting roadways require more clearing and grading, more impervious surface, and wide roadways out of character with the surrounding area (subdivision roadways wider than the country lanes they connect to).  Wider roadways also result in higher vehicle speeds (regardless of the speed limit) and more danger to pedestrians.  

Narrower road sections and alternative road profiles can reduce aesthetic and environmental impact (especially stormwater runoff) of new development, while still allowing safe travel, emergency vehicle access, and adequate parking.  For most low-traffic roads, a 24’ road width is sufficient to accommodate two way traffic, and even narrower widths should be used in very low traffic conditions (e.g., a six-lot subdivision.)  The National Fire Protection Administration Uniform Fire Code (2003) recommends a minimum unobstructed width of just 20 feet, with the recognition that local authorities set lower standards if turnouts or alternate exits are available.  

While many municipal planners and planning boards recognize that many existing standards are excessive, they lack the time and resources to revise their standards.  Other staff and boards favor excessive roadway requirements because they see them as a deterrent to development; however, such an approach is counterproductive as it yields higher housing costs and, ultimately, more damage to the environment and town character.  Developers who wish to implement innovative roadway designs may be forced to apply for a variance or to incorporate unnecessary design elements (A developer in Tyngsborough applied for a variance to construct a roadway with country drainage and swales; the planning board required him to bury the granite curbing flush with the pavement surface.)

More municipalities need to adopt roadway design standards that represent “best practices” in the field; however, one standard will not be appropriate for all municipalities or situations.  A set of alternative standards, codified in the Subdivision Control Law could become the default roadway design standards for municipalities without the resources or inclination to adopt best practices on their own.

27.a    Municipal planning boards and staff should review and revise their roadway standards as necessary

27.b    MAPC and allied organizations should conduct a process to develop stakeholder consensus about roadway design requirements and emergency access

27.c    MAPC and allied organizations should develop a set of alternative roadway design standards that could be codified through state policy

28)    Protect scenic roads through development controls and sensitive design
Most residents and visitors experience the scenic character of Metro Boston’s natural and historical landscapes as they travel through it on roadways.  However, the scenic character of these roadways can be degraded by insensitive development, inappropriate roadway designs, excessive tree removal, and other alterations.  Local controls can help to preserve the character of scenic roads while allowing development and transportation improvements.  

Scenic road bylaws are a commonly used tool to help preserve rural and historic character of local roads.  These controls require planning board approval for alteration of stone walls and removal of trees within the right of way on designated roads.  

Because scenic road bylaws cannot be used to manage development on private land, some municipalities have also adopted scenic overlay districts that regulate the appearance of development within a certain distance of a scenic road or within view from a certain location.  These regulations may address the location, height, density, or massing of buildings; tree removal, alteration of stone walls; or other activity that could impact the appearance of the district.  

Scenic roads and landscapes rarely end at municipal boundaries. Therefore, a regional approach to scenic landscape protection will yield more comprehensive protection.  Where a scenic road crosses municipal boundaries, municipalities should collaborate on development of scenic road bylaws or overlay districts, so that requirements are consistent.  A joint review process for proposed activities within view of the adjacent municipality might also be appropriate.  

Because significant alterations to scenic roads often happen as a result of transportation improvements, it is critical to design local and state roadway projects so that they enhance scenic character.  The MassHighway Project Development and Design Guide, revised in 2006, supports the use of “context sensitive design” to ensure that excessive roadway standards are not applied inappropriately.  Conditions vary throughout the region, and every project is unique, so there is no way to mandate the application of context-sensitive design.  It is incumbent on state and local officials, landowners, and residents to advocate for designs that appropriately balance transportation needs with scenic values.  

There are also a number of tools that municipalities can use to link road preservation with community economic development through tourism. The National Scenic Byways Program, administered by the Federal Highway Administration, is one such program. 

28.a    Municipalities should adopt scenic road bylaws where appropriate

28.b    MAPC should support multi-town scenic road designations for ways that cross municipal boundaries

28.c    Municipalities should adopt viewshed protection overlay districts

28.d    Municipal and state officials should use “context-sensitive” roadway designs in scenic areas