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Growth Management Tools — what works?

Redefining Urban and Rural: Why Growth “Tools” Haven’t Succeeded


By Susan Duncan, Guest Writer, 1-28-08

Editor’s Note: As the City of Bozeman and Gallatin County undertake the monumental tasks of steering rapid growth in the Gallatin Valley and beyond, officials and residents are seeking and analyzing tools to do so properly. Countywide zoning? Transfer development rights? Conservation easements? Susan Duncan discusses how rural and urban residents perceive these “tools” differently.

For nearly 20 years, Gallatin County officials, land trusts, and conservation groups have researched and developed a “tool box” of incentives and voluntary programs to guide growth and discourage sprawl. The “tools” they have tried are conservation easements, clustered development, transfers of development rights and citizen-initiated zoning districts.

Despite these efforts, few Gallatin Valley residents (urban or rural) are confident that the threats posed by growth and development are under control. Recently, two out of three county commissioners agreed that “tools” aren’t enough and voted in favor of implementing county-wide zoning.

Why aren’t the “tools” working as well as we had hoped?

The progress has been slow because the people who want to save open space are not the ones who own the land. Therefore, open space advocates have to convince, bribe, cajole, or pass regulations to encourage landowners to make choices that please advocates. No where did the open space advocates consult with the landowners to determine if they perceived a lack of open space or a need to preserve it.  Consequently, rural landowners feel demands are being imposed on them without their consent, and without enough incentive to comply. Predictably, a strong private property rights backlash results.

Urban and rural folks see the situation differently. Urban residents perceive a lack of open space in their crowded world. To rural residents, open space isn’t scarce. (Sometimes there seems to be too much, as when I have to drive 6 miles to the nearest store.) Instead, for rural folks, the issue is perceived as loss of productive, tax paying agricultural lands. Sonoran Institute recognized this perspective and began talking about preserving “working landscapes” instead of saving “open space”.

Urban folks want the land to look just like it does now. To them, land is static and can be preserved as open space – undeveloped, empty, and vacant. Like raspberry jam, it can be “saved” and will always keep its just picked flavor. To farmers, land is never empty or vacant. Fields and pastures are developed (as opposed to wild) - as production units. Empty, open space to urban folks is a production unit - at work (growing) or at rest (in winter) - to a farmer.

To rural folks land is a precious, dynamic organism that needs a caretaker. It’s a tragedy when land is taken out of agricultural production and held in trust (“saved”) as Open Space without management or maintenance (like the 100 acre Regional Park). Ungrazed grass gets tall, rank, and unpalatable and hard to walk through. As it dries, it becomes an extreme fire hazard. Disturbed ground is open to erosion and weed infestation. Unkempt, open ground invites vandalism and illegal dumping. Watching the decline of once productive farm ground is as painful as watching an abused and neglected child spiral into delinquency. It’s even worse if the land was purchased by a state or county government for open space and therefore, taken off the tax rolls. The property went from an asset to a liability – by design!

By definition, easements infringe on property rights. Easements give another party the right to use part of a landowner’s property for a specific purpose – a right of way for a road, telephone or power line, natural gas pipeline or for maintenance of an irrigation ditch. Conservation easements are no different. The only question is whether the benefits outweigh the curtailment of future options. Easements generally are in effect in perpetuity and go with the property when it changes hands. Any easement restricts what the landowner can do with the property.

Farmers have always favored “clustered development”. Farm buildings are clustered for convenience and to avoid interference with production. For farmers, clustered development (in the open space context) can be positive or negative - less income due to fewer home sites to sell or income plus open space dedicated to farming.

“Transfer of development rights” means passing the farm on to your heirs (or another buyer). In the open space context, it means giving up some private property rights, devaluing the taxable, as well as loan, value of a farmer’s greatest asset and retirement account. As land values and property taxes rise, the incentive to sell out is enormous. Putting farmland in a conservation easement can extend the economic viability of a farm, but it does not guarantee that the farm will be economically viable in perpetuity. Regardless of the intent, it may not be a farm forever.

Citizen initiated zoning is scary to farmers. Although a block of farmers headed by Terry Murphy in the Boulder Valley (north of Whitehall) did develop an agricultural zoning district to keep land in agriculture, farmers rarely initiate a zoning district. Too often, the citizens initiating the proposal are residents of rural subdivisions who want to protect their views and open space - urban values - without understanding how their proposals will affect farmers in the district. Farmers fear being outnumbered and outvoted by those who have a different culture and expectations.

Tools can preserve selected high value properties offered by willing landowners. Tools can extend the economic viability of some farms and ranches. But I want more than token “preservation of our heritage”.  I want to preserve a viable working ecosystem - biological, social, and economic – that is flexible and dynamic. It has to meet the shared needs of the people who live here and still tend to retain “the values that attracted and hold us in this valley” over time. We all have to be involved in its creation and maintenance, because the outcome affects all of us.

More next time .

Read and join the conversation on Susan Duncan’s first column on ”Redefining Rural and Urban: A Community Discussion.”

Susan Duncan lives on a 76-acre irrigated farm in the Gallatin Valley of Montana that she and her husband Richard built from a fallow grain field since 1976. They raised registered and commercial cattle, sheep, and hay. Now they are niche market entrepreneurs of Dexter cattle and some produce. From 1999-2004 Susan was a country lifestyle columnist for the Bozeman Daily Chronicle “Fencelines” Section. She holds a B.S. Degree in Forestry from the University of Montana. For the last 20 years she has been an active participant in local efforts to envision a viable future and guide exploding development.



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