Ipswich Zoning History

A Closer Look at Zoning Policies and Their Impact

We are currently grappling with a severe and ongoing housing shortage in our region and in our Town. It is essential to delve into the origins of this shortage and examine Ipswich’s historical housing and zoning policies to understand what actions have led to our current situation, wherein the types and amount of housing is not presently sufficient for those looking to stay in Ipswich or move to Ipswich.   This understanding will guide us in identifying effective strategies that Ipswich can implement to help alleviate the housing shortage and provide better support to our community.

“It is apparent from the results of the survey that residents do not want to provide new housing for the region.”

– 1974 Progress Report on the Ipswich Master Plan

What is zoning?

Zoning refers to the legal establishment of geographic areas where certain types of buildings and activities are prohibited. Simply put, it dictates what can and cannot be built in specific areas. While sometimes beneficial for organizing the built environment, zoning can also be misused for harmful social objectives. It can act as a means to exclude specific groups of people, including:

  • Racial minorities, especially Black residents
  • Lower-income and working-class residents
  • Families with school-aged children
  • Immigrants
  • And, in some cases, any newcomers/outsiders 

“Ipswich can control the scale and diversification of its future residential mix and thereby the character of the Town, through careful planning. Zoning is the most powerful tool available to this end.”

– 1974 Progress Report on the Ipswich Master Plan

Zoning Evolution

The evolution of zoning in Ipswich and the Greater Boston area reflects broader trends and responses to various social, economic, and political influences over time.

1920s and ‘30s

During the 1920s and ’30s, many towns adopted basic zoning requirements, but Ipswich did not formalize zoning during this period.

Postwar era to approx. 1968

Most communities in Greater Boston adopted zoning, which grew more complex over time. Municipalities began introducing discretionary decision-making for residential construction, favoring large single-family homes and limiting multifamily housing development. Ipswich established its Planning Board in 1951 and introduced its first Zoning Bylaw in 1956, which required one-acre zoning in the Rural Residence District and restricted apartments. The population grew rapidly due to new residential construction.

1968-1978
(The Big Downzone)

From 1968 to 1978, many cities and towns, including Ipswich, adopted more restrictive zoning policies, often influenced by the Civil Rights movement’s push to desegregate suburbs. Ipswich’s 1980 Land Use/Vacant Land Study revealed a shortage of land zoned for multifamily housing, despite sufficient land for single-family homes on one-acre lots. This restriction limited housing diversity.

1978 to present

Since 1978, cities and towns have gradually revised zoning to allow various housing types, though often involving extensive discretionary reviews. Ipswich faced gentrification concerns in the early 2000s, leading to rising housing costs. The town implemented measures to combat suburban sprawl and address housing needs, as outlined in the 2006 Ipswich Housing Production Plan. Despite efforts, challenges with sprawl and affordable housing persist.

The Town has until December 31, 2024 to adopt a bylaw for a 3A district.

Types of Zoning Restrictions

FISCAL ZONING

Fiscal zoning is a strategy where cities or towns use zoning laws to increase their income compared to their spending. The goal is to promote land uses that bring in more tax money while reducing the cost of related services. Although fiscal zoning is intended to help with budgeting, it often leads to excluding certain social classes.

1964 Ipswich Comprehensive Plan Summary Report

“The community should undertake definite action to protect and enhance existing property values, and should try to encourage the development of more expensive single-family dwellings.” 1

ZONING TO EXCLUDE FAMILIES WITH CHILDREN

This practice falls under fiscal zoning. Since the early days of zoning, there has been a concern about the impact of new housing on school populations. Over the years, many cities and towns have openly used the cost of educating additional children as a justification for zoning that restricts residency based on age. Other frequently mentioned reasons include the lower traffic associated with senior residents and the need to provide housing specifically for seniors.

2003 Town of  Ipswich Community Development Plan

“H2-1. Senior Housing Use Category: Housing for senior citizens is an important need in Ipswich, and will become even more critical in the future, as the elder population continues to grow. In addition, housing for seniors generally has much lower impacts (e.g., traffic and school children) than other single-family or multi-family housing, and therefore can be part of a comprehensive growth management strategy.” 2

CLASS ZONING

Zoning that primarily allows only single-family homes, while excluding a variety of other housing types, effectively blocks people of different income levels and social classes from living in those areas. This practice is commonly known as “snub zoning.”

1974 Progress Report on the Ipswich Master Plan

“The socio-economic character of the Town has been and continues to be determined in large part by the character of the housing resources available to prospective residents.” 3

SINGLE FAMILY ONLY ZONING

Suburbs are mainly zoned for single-family homes, leaving insufficient room for other housing types. Often, these other housing options are located in areas with fewer amenities and greater exposure to noise and pollution. The emphasis on large lots (2+ acre) for single-family houses has resulted in limited land availability, hindering the development of a diverse range of housing options.

2020 Ipswich Housing Production Plan

“Current zoning regulations do not facilitate a quick and easy path to development of multifamily and mixed-use developments because multifamily units are not permitted by-right in any of Ipswich’s zoning districts.” 4

1980 Town of Ipswich Inventory & Analysis of Vacant Land

“The vacant land study shows that there is sufficient land available to provide for new housing facilities on one-acre lots, but very little land which is properly zoned for multi-family housing.” 5

“Lots with a size of between 5,000 square feet and 43,000 square feet (1 acre), which were created prior to the local bylaw and subsequent amendments, are eligible for construction of a new dwelling unit according to the “grandfather” clause provisions of the State statute.” 6

1974 Progress Report on the Ipswich Master Plan

“42 percent of respondents felt that new developments should be of the single family type.” 7

1969 Town of Ipswich Annual Report

“…and to prohibit the erection of more than one dwelling per lot anywhere in town.” 8

EXCLUDING NEWCOMERS

The boundaries that create a sense of belonging for some while designating others as outsiders are key drivers of zoning-related exclusion. Moreover, Massachusetts’ zoning system, as structured, promotes local civic engagement for the benefit of municipal residents, often at the cost of outsiders and regional interests, thereby perpetuating patterns of privilege and disadvantage.

1974 Progress Report on the Ipswich Master Plan

“It is apparent from the results of the survey that residents do not want to provide new housing for the region.” 9

Attempts at Restricting Housing Development Through Town Meeting

2023 ANNUAL TOWN MEETING

The proposed new construction moratorium, which aimed to assess the impact of recent construction on infrastructure, can be viewed as exclusionary. Had it been implemented, it would have made it more challenging for people, other than the extremely affluent, to move to Ipswich. This is because it would have limited the number of houses on the market, potentially driving prices up and restricting housing availability for a broader range of residents.

Article 24 – New Construction Moratorium

Due to the extreme drought, we propose a new construction moratorium in the town of Ipswich for a period of one year.

Summary: This NEW residential construction pause would allow the town to assess the impact of recent and in-progress construction projects on our current infrastructure – safety, roads, schools, and water supply.

2020 SPECIAL TOWN MEETING

The proposed building moratorium on multi-unit developments is exclusionary because it limits the construction of more affordable housing options that cater to diverse residents, including lower-income households and minorities, potentially favoring single-family homeownership and contributing to housing inequality.

Article 17 – Two year building moratorium on multi-unit developments

Section II. D. Building Moratorium – Multi-unit developments

No new building permits shall be issued for the construction of multi-unit developments consisting of three or more dwelling units in any zoning district in the town for a period of two years. 

Summary: This temporary building moratorium for multi-unit developments. Ipswich is experiencing an unanticipated increase in the construction of multi-unit developments. Concurrently, the town is updating/revising several existing plans including: The Housing Plan, the Community Development plan, and the Water Neutral Development plan. The town needs to complete these comprehensive studies to allow its respective approval boards to fully evaluate the impact these proposed multi-unit developments have on the water, sewer, and roadway infrastructures; police, fire, and emergency public safety; the school district, and the safety of the general public. This Moratorium shall not apply to building permits for future phases of any project which has obtained all required permits and approvals (except building permits) prior to the effective date of this Bylaw.

1985 SPECIAL TOWN MEETING

The moratorium proposal still allowed for the development of single-family homes while denying other types of housing, like mixed-use or apartments, and would have effectively excluded individuals from lower income brackets, minorities, and those seeking diverse housing options, from Ipswich as it limits their access to affordable and varied living arrangements.

Article 22 – To see if the Town will vote to amend the Zoning By-Law of the Town of Ipswich, “SECTION V. USE REGULATIONS” by adding to the end of the subsection “D.” thereof a new subsection “E” to read as follows

E. MORATORIUM

1. Whereas the Town of Ipswich is in the process of a comprehensive review and updating of its zoning by-law, it is desired to protect the Town from ill advised development and to maintain the status quo during such review.

2. No new buildings whatsoever, whether residential, commercial, industrial, or mixed, shall be constructed

3. This amendment shall not apply to:

– Renovations and repairs to existing buildings, if such building is not enlarged in exterior dimensions by such renovations and/or repairs;

– Construction of a single family dwelling house, including customarily accessory structures, on a lot in accordance with all of the applicable provisions of the By-Law, if, and only if, the lot on which the single family dwelling is to be constructed was not held in common ownership with any adjoining land on June 01, 1985; and

– Construction of public buildings and community facilities.

– Variances from the application of Subsection E. may be granted by the Board of Appeals in accordance with the provisions and requirements of M.G.L. c. 40A, #10

– This amended shall be effective for a period of twenty-four (24) months commencing on the date of its adoption by town meeting

Conclusion

This examination of Ipswich’s zoning policies reveals a pattern of exclusion and housing inequality. Our aim is to encourage thoughtful discussion and action towards more inclusive zoning practices that address the current housing crisis.

This document draws primarily from Exclusionary by Design: An Investigation of Zoning’s Use as a Tool of Race, Class, and Family Exclusion in Boston’s Suburbs, 1920 to Today by Amy Dain, Dain Research, while incorporating insights from other relevant Town of Ipswich sources.

  1. 1964 Ipswich Comprehensive Plan Summary Report, page 8. ↩︎
  2. 2003 Town of Ipswich Community Development Plan, page 33. ↩︎
  3. 1974 Progress Report on the Ipswich Master Plan, page 3. ↩︎
  4. 2020 Ipswich Housing Production Plan, page 11. ↩︎
  5. 1980 Town of Ipswich Inventory & Analysis of Vacant Land, page 2. ↩︎
  6. 1980 Town of Ipswich Inventory & Analysis of Vacant Land, page 7. ↩︎
  7. 1974 Progress Report on the Ipswich Master Plan, page 6. ↩︎
  8. 1969 Town of Ipswich Annual Report, page 37. ↩︎
  9. 1974 Progress Report on the Ipswich Master Plan, page 4. ↩︎