Small Towns Facing Rapid Growth
Bryan D. Stumpf, AICP	© & Author Info

Abstract

Rapid growth is occurring in many small towns across America. This paper examines two prevalent types of rapid growth in small towns and provides examples of how some communities have prepared for an onslaught of growth that can permanently alter the quality of life enjoyed by residents. Two case studies are provided to aid in the discussion. Buffalo, West Virginia offers a view of anointed location growth while Westfield, Indiana provides an example of metropolitan fringe growth.

Introduction

In many small towns, rapid growth is a new reality. The out-migration from metropolitan areas documented by the past census is having serious impacts on small towns and rural America. This paper addresses how small towns across the country have prepared for and reacted to often inevitable growth in a manner that preserves their small town atmosphere. These communities are committed to anticipating the pending population boom and responding in a manner that will not diminish their long-term economic and social health should the trend reverse in the future.

This paper explores the types of growth small towns face. Examples include Buffalo, West Virginia (pop. 1,000), the site of a new Toyota plant and tremendous infrastructure investment such as a possible new regional airport. It also includes Westfield, Indiana (pop. 6,000), an exurb of Indianapolis that is expected to experience tremendous residential development during the next ten years.

While these communities have chosen different methods for protecting their small town atmosphere, both are aiming for similar results. Buffalo has opted to address where and how development occurs in order to maintain the elements that create the quality of life enjoyed by residents. This is a dramatic step for a community that currently has no zoning! Westfield, on the other hand, has elected to set growth boundaries to address the location of development and minimize the overall size of the community.

Types of Growth Affecting Small Towns

Two types of rapid growth are affecting small towns and rural communities. Anointed location growth occurs when a series of economic factors align to attract a major employer to a rural area. Metropolitan fringe growth occurs in small towns usually within one hours drive of employment centers in large cities.

Each growth type has distinctive characteristics. These characteristics are summarized on Table 1. In general, anointed location growth is employment based growth that involves the siting of a major employer. Knowing that rapid growth would not occur without the location of the employer, residents reluctantly accept the change. They welcome new employment opportunities, but resist change to the small town atmosphere they highly value.

Conversely, metropolitan fringe growth is residentially based growth driven by people leaving the big city. The new residents desire to live in a small town while enjoying the benefits of retaining employment in the city. With changes in technology and the ease of commuting to the city, this type of growth is often inevitable.

When both of these types of growth occur, two issues come to the forefront. First, many residents are resistant to change out of a desire to protect the small town character they value. Life-long town residents do not want to see their way of life disappear as a cost of development. Likewise, new residents in metropolitan fringe areas often oppose growth because it takes away from the characteristics that made them move to the small town in the first place.

Characteristics of Sample Communities

Anointed Location Growth (Buffalo, West Virginia)

A prime example of anointed location growth is the Town of Buffalo, West Virginia. The town is located in the northwestern Putnam County along the Kanawha River (see Figure 1). Steep wooded hillsides constrain the town to the narrow river valley. Incorporated over 160 years ago, the town currently has a population of approximately 1,000 residents. The town has sustained a steady growth rate over the last 30 years, but at a fraction of the growth rate of Putnam County. Most of the growth in Putnam County has occurred along the Interstate 64 corridor that traverses the county east-west.

Figure 1

Over the past few years, the Buffalo area has seen tremendous private and public investment. While preparing a comprehensive plan for the Town of Buffalo, HNTB identified eleven regional factors that can or will strongly shape growth in the northwest portion of Putnam County (see Figure 2).

Figure 2

Most of the elements identified have already been constructed or have secured funding. Others are in the planning stage. For all of items in the planning stage that have alternative locations, the Buffalo area is the preferred location for the facilities. Below is a brief description of each of the regional factors.

1. Toyota Motor Manufacturing Plant. Toyota Motor Manufacturing, West Virginia has selected a site just south of the Buffalo town limits to locate a new manufacturing plant. Originally, the plant was to employ 300 persons in the manufacture of engines. Since the initial decision to locate in the Buffalo area, Toyota has expanded the range of products manufactured at the site. Employment is now expected to approximately 900 persons.
2. Four Lane Improvements to SR 62. The industrial development south of town has lead to a widening of SR 62 from the new Toyota manufacturing plant to the new Buffalo Bridge.
3. New Buffalo Bridge. A new bridge was erected across the Kanawha River south of Buffalo. The bridge links SR 62 with US 35 and provides an alternative to the crossing at Winfield.
4. AEP Property. American Electric Power owns two large tracts of land along the Kanawha River immediately north and south of the Town of Buffalo. Each of these holdings contains roughly 2,000 acres of land suitable for industrial development. AEP is committed to using the land only for industrial uses.
5. Fraziers Bottom Industrial Park. On the west side of the river just north of Hurricane Creek Road is a recently created industrial park to meet the demand for new industrial space.
6. New Sewage Treatment Plant. To address the industrial growth in the area, a new sewage treatment plant was constructed to accommodate new industrial wastes and provide services to residents in the area.
7. West Virginia American Water Line Extensions. New 16 inch water lines are being extended along parts of US 35, SR 62, Plantation Road, and Eighteen Mile Creek Road.
8. Possible West Route of SR 35. A new route for US 35 is planned on the ridgetops west of the Kanawha River. While the final route has not been determined, the variations in the route alternatives occur south of the Study Area and relate to how the new US 35 would connect to I-64.
9. Possible Regional Airport Site. The Evergreen Church area is the preferred site for a regional airport that would service the Huntington and Charleston metropolitan areas, replacing the airport at Charleston.
10. Possible Bi-County High School. A site within the Town of Buffalo has been selected as the preferred site for a bi-county high school to serve northern Putnam County and southern Mason County.
11. Possible Putnam County Port Authority. The Putnam County Port Authority is investigating the construction of a new port on the Kanawha River south of Buffalo.

These monumental influences create great growth pressures and a sense of urgency for Buffalo to prepare for a growing future. While all of these investments provide incredible opportunities for Buffalo, if the growth and development is not managed in agreement with the community’s values, the quality of life enjoyed by residents will be lost.

In 1990, Putnam County had a population of 42,835. According to Regional Intergovernmental Council forecasts, in 2020 Putnam County is expected to have a population of 78,454. The Interstate 64 corridor and Buffalo area are anticipated to see the most growth. Development in and around Buffalo will reorient activity in the county along a north-south axis linking Buffalo to Interstate 64 rather than the current east-west interstate corridor orientation. With the amount of investment in the Buffalo area, industrial growth seems inevitable. However, the amount of new residential growth (and thus population) captured in the Buffalo area is dependant upon the community’s desire to supply housing to employees commuting into the area for employment opportunities. Based upon projections prepared by HNTB, Putnam County anticipates an employment growth of 20,510 jobs in the period from 1990 to 2020. Many of these employment opportunities will occur within the Buffalo area.

Metropolitan Fringe Growth (Westfield, Indiana)

Metropolitan fringe growth is the most common type of growth facing small towns. While many communities could be used as examples of this type of growth, Westfield, Indiana exemplifies the rapidity in which it can occur. Located within Hamilton County, Indiana, the Town of Westfield lies less than ten miles from Indianapolis and Marion County (see Figure 3). As a township, this rapidly growing community of nearly 16,000 residents is conveniently located near other growing communities such as Carmel, Fishers and Noblesville. Major transportation routes such as I-465, I-69, and I-65 are minutes away, and US 31 bisects the township serving as the major north/south route in the community.

Figure 3

A Special Census in 1997 revealed a population of 5,341, a 61 percent increase in population since 1990. The total population of Washington Township (in which Westfield is located) is estimated at 16,000. To better address this dramatic growth, a Plan Commission presiding over the 56 square miles of the Town of Westfield and Washington Township was established.

Since 1990, a new high school and a third elementary school have been constructed, a new public safety building and post office were erected, and an industrial/office park has come to fruition. New residential and commercial developments are under construction daily. Major thoroughfares and intersections have become congested while the desire for more recreation and open spaces is becoming more prevalent. People are concerned for their community and seek policies and programs to manage the pressures of growth on local resources and quality of life.

As part of the Indianapolis Metropolitan Statistical Area(MSA) and the contiguous urban area, Westfield and Washington Township are indeed related to the greater Indianapolis region. Economically and socially, the residents of Washington Township associate with over 1.5 million other people in the Indianapolis MSA. Figure 4 depicts the historical growth of the Indianapolis Urban Area within the nine-county MSA. The yellow in the center of the map represents the contiguous developed area in 1963. Moving outward, the light green area represents the growth of the area through 1985. The outermost, dark green area is the current contiguous developed area. This region stretches from the Town of Franklin in the south to the Town of Westfield in the north.

Figure 4

In addition to the relationships with the greater Indianapolis area, Westfield and Washington Township is recognized as part of a four-community suburban area. Adding the other townships in the county which include the communities of Carmel, Fishers, and Noblesville; the region physically creates a medium-sized city totaling over 120,000 residents. As a result, Hamilton County is poised to be a major economic contributor in the future development of the Indianapolis area.

Within the Hamilton County area, there are two notable plans that will affect the residents of Westfield and Washington Township. A bicycle and pedestrian plan is currently being developed for the Indianapolis area that envisions trails and bikeways linking the entire metropolitan region.

Perhaps more influential to the future development of the area are the studies of the US 31 corridor from Indianapolis to South Bend. The Indiana Department of Transportation (INDOT) currently has plans for upgrading US 31 in Hamilton County to a limited-access highway complete with "diamond" interchanges from I-465 to State Road 38 beginning in 2007. At this time the plan is calling for upgrading the existing four to six lanes to perhaps ten lanes near the 146^th Street area and six to eight lanes throughout the remainder of the corridor. The potential impacts and effects of these changes are numerous. The proposed interchange locations for Washington Township are identifed at 146^th Street, 161^st Street, SR 32, 191^st Street, and SR 38 (see Fgure5).

Figure 5

Westfield and Washington Township are expected to continue their rapid growth throughout the next twenty years. Considering the historic growth rates and proposed land-use densities identified in the comprehensive plan, the projected build-out of the township is approximately 100,000 persons. The township is estimated to have a population of nearly 60,000 people in the year 2020. Determining how and where the township will be developed for this population increase was a major task of the comprehensive plan prepared by HNTB.

Two-thirds of the land in Washington Township is currently used for agricultural purposes. In addition to lands used for crop production, this label includes sod fields, livestock grazing areas, and horse ranches. The remaining 34 percent is comprised of residential, commercial, industrial, public, and park or open space areas. Without the undeveloped agricultural areas included in the land use calculations, the ratios of the remaining land uses are consistent with national averages of similar sized communities.

The development pressure in Washington Township is focused primarily on residential land uses located in the southern half of the township. Much of the new housing development has been in the south-central portion of the township. Retail uses continue to thrive in the Village Park Plaza area at 146^th Street and US 31 in response to new demand created by the recent rise in residential construction.

A recent burst of housing construction has occurred within the Town of Westfield. Many new subdivisions are taking advantage of existing infrastructure on vacant sites. Still, many other subdivisions have consumed land that is not adjacent to existing development, and in previously agricultural lands in the unincorporated areas of the township. The character of the new subdivisions is to those in surrounding communities: moderate to large-sized lots on cul-de-sacs few or no connections to neighboring developments.

Values of Each Community

While the communities of Buffalo, West Virginia and Westfield, Indiana are facing different types of rapid growth, the underlying values in the two communities is similar. The responses to questions at the public meetings indicated a desire to manage growth and protect the small town atmosphere of the community. There was also a strong desire to make the existing downtown area the heart of the community to protect and improve their primary identity source.

While residents had differing opinions on what elements comprise small town atmosphere, there was overwhelming consensus to protect this feeling they all shared. Discussion in each community focused on whether the small town atmosphere was relative to population, land area, community structure, or aesthetics. The challenge was set to maintain the quality of life elements that create a small town atmosphere while allowing new growth to occur.

Downtown vitality was also an important issue. Both towns enjoy a historic central district to the community that provides residents with a sense of place or identity. Their historic preservation activities in the downtown areas ranked strongly at the public input meetings. Although market forces sometimes shift a community’s commercial focus to other areas, to original core remains an integral part of the town. People are attracted to small, unique downtown areas with opportunities for shopping, dining, and human interaction. Residents wanted their downtowns to serve this function.

Community Goals in the Face of Rapid Growth

Anointed Location Growth (Buffalo, West Virginia)

From the synthesis of public comments and an analysis of demographic and economic trends evolved three main goals for the Buffalo Town Plan: retain community character, become a regional growth center, and balance the two previous goals through local management and control.

Retaining community character focuses on translating the goal of a high quality of life into the quality of the built environment. It includes all efforts to improve the quality of life beyond the provision of quality housing and provision of high levels of municipal services and facilities. Most often, community image enhancement centers on creating more visual and social amenities within specific local areas, and helping to give the community a strong identity and a unique personality. The community image theme in Buffalo has many components, including the community’s identification as an important growth area, which was discussed as part of the regional growth center theme. Other components include retaining a sense of community, design features, traffic congestion, and municipal services.

Buffalo’s attractiveness makes growth in the northwest portion of Putnam County inevitable. However, this does not mean that growth must occur at the cost of Buffalo’s small town character. Buffalo’s view of becoming a regional growth center is a broad one, extending beyond the town’s immediate boundaries. Residents desire to turn these individual improvements and investments (identified on Figure 2) into a coordinated plan that creates a sense of place and an identity as a regional growth center that respects Buffalo’s special character. With the creation and implementation of proper growth management tools, the development of infrastructure and new businesses can occur in a manner that supports and follows—rather than leads—the community’s determination of desirable land uses, intensity, and character. Creation of a regional growth center will also bring with it much needed commercial and industrial uses that expand employment opportunities, increase the per capita incomes of residents, and increase the tax base which provides the necessary funding for other improvements desired by the residents, such as improving roadway conditions.

In order to balance the above goals, the Town Plan represents Buffalo’s commitment to take responsibility for managing its own future; guide the type, amount, and location of development in a manner consistent with local social values; ensure the adequacy and integrity of services and facilities; and to protect and enhance the quality of life of its citizens. Without the local control and ability to manage daily community affairs, there is little assurance that development decisions will reflect local social values or the long-term commitment needed to adequately protect the environment of the area. As can be seen in other areas of West Virginia, only through concerted, joint action can local residents be effective in inserting community values into the review of development.

Metropolitan Fringe Growth (Westfield, Indiana)

From the combination of public comments with the analysis of demographic and economic trends emerged three main goals for the Westfield/Washington Township Comprehensive Plan: manage future growth, retain community identity, and improve community connectivity.

Community members expressed concern regarding the existing effects of scattered, unconnected development. They believe the current patterns of residential subdivisions and intense commercial development are not creating a community; but rather, threatening the existing community. The residents seek stricter controls on development, including intensity and location. Their concerns regarding growth management include preserving rural/agricultural character, protecting environmental features, and planning and directing growth.

The residents of Westfield and Washington Township are overwhelmingly concerned with the identity of their community. This deeply rooted community pride is a positive quality and an important resource for the creation of this plan. The main identity concerns include retaining a small town atmosphere, enhancing historic preservation activities, and maintaining and improving the "old downtown" area of Westfield.

In an effort to create a better community, the residents of Washington Township seek more connections for both pedestrians and vehicles. The main concerns are improving east/west traffic flow and encouraging open space, parks, & trails.

Implementation Measures Being Used to Achieve These Goals

Anointed Location Growth (Buffalo, West Virginia)

The Buffalo Town Plan grew from a comprehensive plan covering only the town’s incorporated area into a plan for the entire northwestern section of Putnam County. The final version of the proposed land use plan strives to protect areas well suited for industrial uses, enhance downtown Buffalo, and place residential development on hilltops east of the town (see Figures 6 and 7).

Figure 6


Figure 7

Currently, there are no land use controls for any of the areas addressed in the Buffalo Town Plan. The first step in implementing the vision of the Town Plan was the adoption of the Buffalo Town Plan by both the Town of Buffalo and Putnam County. Adoption of the plan by just the town would have been woefully short of the necessary policies to implement the plan.

The next implementation measure is the adoption of a unified development code for the Town of Buffalo. This is a dramatic step for a community with no zoning! The Putnam County Office of Planning and Infrastructure currently enforces subdivision regulations, but there are no restrictions on the density or location of residential development. Adoption of a unified development code would lead to the regulation of where and to what intensity future growth should occur. Such regulation is important to prevent residential development from covering the few areas remaining in the county that are suitable for industrial development.

The unified development code will contain design quality standards, site environmental provisions, and aesthetic controls. Residents were very concerned that the appearance along the new "Main Street" into the town would become an endless parade of overbearing signs and out-of-scale buildings with no landscaping. To this end, the unified development code would set standards for site layout, landscaping, open space, buffering of adjoining incompatible land uses, erosion control, hillside protection, drainage control, and sign regulations.

A five year capital improvements program should be initiated to identify improvements that need to be made throughout the town along with the funding for these improvements. Buffalo residents desperately desire to have their roads paved and sidewalks constructed to link areas of the town.

The first phase of a multi-phase annexation policy is targeted to occur within the first year of implementation. This area would annex the property owned by American Electric Power that currently boxes in the northern and southern ends of the town (see Figure 8).

Figure 8

Metropolitan Fringe Growth (Westfield, Indiana)

To guide future growth and development, the Town of Westfield opted to create an urban growth boundary (see Figure 9). In the plan, residents have taken steps to create a more livable community by defining connections within the town and protecting and enhancing their identity through downtown improvements.

Figure 9

In order to ensure that the full ramifications of the growth boundaries are understood, the town council adopted the concept of growth boundaries. However, before officially adopting the comprehensive plan, they want to see the proposed revisions to the zoning ordinance and subdivision regulations that are necessary to implement the growth boundaries. This involves updating the current ordinances to accommodate higher densities through multifamily and townhouse residential provisions, preserving agricultural areas through cluster subdivisions, and ameliorating the perception of higher densities through landscaping standards.

Meticulous detail has been taken during the update of the ordinances. Hypothetical build-out scenarios have been created when addressing zoning densities within and outside of the urban growth boundaries. Figures 10 through 14 illustrate how development could occur based on the zoning standards that are adopted.

Figure 10

Figure 11

Figure 12

Figure 13

Figure 14

Figure 15

Figure 16

The town has struggled with making the ordinance revisions in a manner that the most acceptable with town residents. To this end, special subcommittees of the plan commission were established to address specific topics, such as landscaping, multifamily housing, agricultural preservation. Each committee contains some plan commission members and concerned citizens with specialized knowledge regarding the topic of the committee. While an arduous task, progress is being made toward the revision of the ordinances and the creation of the first urban growth boundaries in the state of Indiana.

Bryan D. Stumpf, AICP
Project Manager
HNTB Corporation, Indianapolis