The Board of Selectmen a little over a year ago formed and appointed the Economic Development Committee to study the possibilities for responsible pro-active economic development within the town. Recognizing that the stagnation in the town’s growth revenues from commercial/industrial property (the CIP sector had dropped to less than 20% of property tax revenues), the BOS charged the committee to review current practice, town documents and data, state programs, successful practices in other towns, and input from various people and organizations. The EDC organized, gathered and reviewed data, looked at structural options, drafted a survey, conducted several interviews, and reviewed available options over the course of last summer and fall. In November 2004, we gave the BOS an interim report and initial recommendations.
Since then we have spent considerable time exploring in detail a few key areas of interest. Specifically, we examined the new state laws governing “smart growth”: chapter 40R, which deals with village district zoning, and chapter 43D, a state program for expedited permitting. For both of these new programs, we developed one-page summaries and identified pros and cons (attached). And we explored alternative models used in other communities, and discussed what may benefit Littleton most. The EDC also examined the town’s current regulatory practices, focusing on scientific and technological reviews conducted by engineering consultants on behalf of the LELWD. We explored as well the revenue value of various zoning changes, conducting a workshop with the Assessors office that traced growth revenue back to underlying zoning and valuation, and created formulas and models for different scenarios. In addition, the EDC has researched the use and importance of marketing options for town economic development efforts, and has conducted a workshop to understand the town’s in-house GIS capabilities.
We now have several specific recommendations to make to the BOS, the Planning Board, and the town, that we feel will allow Littleton to conduct a thorough, meaningful, and beneficial economic development campaign. These recommendations do not exist in a vacuum. They ideally will support existing town values and mores, and advance goals identified in the Master Plan. They also would be greatly affected by (in some cases are dependent upon) other major town initiatives now under consideration: most importantly the study of limited sewer districting, and the relocation of the commuter rail station. These recommendations also need to be considered in toto; one or two steps alone won’t likely have the desired impact.
Our recommendations, which are spoken to in more detail in support documents, are:
1. Zoning regulation changes to reflect science and new technology – Consultants engaged by the LELWD have identified three key deficiencies in Littleton’s present zoning regulations that do not reflect current science and technology, and which can have the effect of inhibiting desirable development while encouraging less desirable development. Although Littleton was a pioneer in these types of regulations 20 or more years ago, ironically we now have some regulatory language that no longer reflects current technology. Specifically, three regulations dealing with parking density, lot coverage, and wastewater flow management, do not provide environmental protections as much as they do create hardships and limitations. Changes in these regulations now would have immediate impact on the quality of future development without sacrificing environmental protection.
2. Village district zoning - Most of the attention on this subject has been devoted to the much-ballyhooed state 40R ‘smart growth’ legislation, but in truth other communities have been using pre-existing zoning law for years to create village district zoning in their communities with many tangible benefits. Our Master Plan calls for mixed-use higher-density village districts for the Common and Depot areas. Littleton can use state and other town models to tailor-make our own village overlay or district zone to encourage good growth where we want it, and protect bordering greenbelts while we do it. Transfer of development rights, and other Master Plan objectives can also be incorporated into the district plan. Assessor studies of the tax impact of this type of village zoning show remarkable potential for growth revenue. It is important to note that a serious effort at village district zoning will also necessarily incur significant infrastructure costs for sidewalking, parking, sewering, etc. Some of this can be financed by betterments, some is state responsibility, and some can be funded by dedicating a portion of newly created revenues to infrastructure and other related uses (allowable under MGL c.40Q). Without bowing to any onerous state program, we can grow a Littleton in keeping with our vision, while significantly increasing revenues to the town.
3. Expedited permitting – Like the village district zoning, most of the attention here has been focused on state enabling legislation (and the strings attached). The reality is that the regulatory permitting process climate (real or perceived) is a huge determinant in whether and what kinds of development a town will see. Northeastern University’s Center for Urban and Regional Policy released a study last year which identified “the costs and risks of delay” with “excessively complicated permitting processes” as the number one ‘deal-breaker’ for prospective businesses considering where to site. Other towns, with less to offer than Littleton, have figured this out and have made their regulatory process welcoming, helpful, understandable, and efficient---all without ceding statutory authority or rights. Whether it is coordination of existing functions, creating a single point-of-contact for applicants, running concurrent timelines with different boards, conducting joint meetings to identify requirements up front, keeping useful data such as property inventories in-house, there is much we can do to make our permitting process more user-friendly. This is essentially a no-cost item, but it could yield huge dividends.
4. Marketing Plan – This may seem like a no-brainer but it’s not to be overlooked. Development of a website, and of a marketing brochure and packet ought to be done to sell Littleton and its assets. Coordination with the LELWD (and perhaps other private utilities such as Verizon) on this is a natural, but it really shouldn’t be done until after we’ve conducted our survey of commercial property owners and other players in the development market. The committee member who has researched other communities’ marketing efforts makes this important observation: there’s no point in marketing until and unless we have actually made the changes that will make Littleton more marketable.
5. Survey – Last fall we submitted a draft survey for BOS review which could be distributed by the LELWD and would be used to solicit input from commercial/industrial property owners. It has not yet been sent, so we hope it can be reworked based on our more updated information, and mailed ASAP. We need input and approval as soon as practicable. At this point we are considering another survey, of commercial brokers, developers and others in the development market, to determine needs, interests, and perceived strengths and weaknesses.
6. Consultant help – To date, we have probably done as much as could be expected relying exclusively on volunteer and town resources. In order to draft recommended regulation or by-law changes, to develop an effective expedited permitting process, and a marketing plan, we really need to find a way to engage consulting support services, or at least college intern assistance. This will also be crucial to coordinating EDC efforts with our grant and loan pursuits, and the sewering and commuter rail projects.
What we envision happening is that for the fall special town meeting, we could present the town with warrant articles to address the science and technology regulation changes, and any other necessary articles. We would hope the more involved work for the village district zoning would take place over the fall and winter and be on the warrant for the spring annual town meeting. Naturally, prior to any of this we need to get the Planning Board and the other regulatory boards more directly involved in these efforts, and we need to conduct public information sessions within the community to share our findings and recommendations. Concurrently, the EDC would continue conducting tax impact analysis, GIS modeling, and other research. We would also work with other boards to prepare an initial marketing plan, and to develop an expedited permitting process proposal. In addition, we should be more involved in supporting and integrating with the efforts to secure grants, to study limited sewering districts, and to relocate the commuter rail station. Ideally, we will be doing this with the assistance of a planning consultant and/or an intern.
This isn’t only about money. It’s true, that if we do all this right, we will increase revenues to the town. But more than that, if we pursue this path, the type of Littleton we want will be more likely and attainable. If we don’t -if we continue business as usual- we will not only continue to suffer stagnant growth revenues, we will realize something worse. The alternative to good planning and smart growth is not a lack of development, it’s bad development.