Aiding and
Abetting Population and Business Decline?
Richard W.
Crockett
How do
small rural communities survive economically in the face of national trends
toward urbanization and rural decline?
It is difficult, and one policy in this process is an ironic
choice. It is called the Òforty
acreÓ rule, a legal easement aimed at agricultural conservation. At one time,
according to Marvin Hawk, Warren County Board member, the policy in the form of
the forty-acre rule was encouraged and supported by the Farm Bureau Federation.
Many counties situated adjacent to large metropolitan areas which are growing
have, through the forty-acre rule, dug in their heels and resisted urban growth
by making it difficult for residential housing to be constructed in agricultural
areas. Some counties have embraced
the forty-acre rule policy to resist urban sprawl. While this may serve some purpose for counties experiencing
both population and economic growth, an irony is that many rural declining
counties have adopted this policy, which is modeled on growing
urban countiesÕ needs, but couched it in terms of Òpreserving
agricultural land.Ó Yet, on the
face of it, these policies seem counterproductive. At least so thinks Warren
county board member, Marvin Hawk of Roseville, who is a farmer and also in real
estate sales.
Warren
County adopted the forty-acre rule effective January 1, 2001, and when it did
so, this preservation easement Òpassed almost unnoticed,Ó according to
Hawk. But in the rural communities
in western Illinois the problem for little towns is not the unbridled effects
of urban growth, but surviving the Òfarm consolidation issue.Ó When represented as the preservation
issue, it becomes a choice between preservation of agricultural land for
large consolidating farm interests and preservation of the small
communities that dot the countryside, which in the past were supported by
persons living on the family farm.
Hawk was
the guest speaker of the Warren County LandlordÕs Association on Thursday,
April 10, 2008. Armed with charts
and tables, Hawk pressed his case for repealing or at least modifying the
forty-acre rule in Warren County. The upshot of the rule is that it is
difficult to build a non-farm home in the rural countryside without either a
variance, a zoning change or a Òparcel in excess of 35 acres.Ó Parcels of this
size are Òpresumed to be a farm, if used for agricultural purposes,Ó and
construction of a dwelling is permitted on a farm, according to the county
ordinance. At anywhere between
$2,500 and $7,000 (some say $8,000) per acre for agricultural land in Warren
County, this requirement makes the prospect of home construction on isolated
parcels of land by persons who are not farming difficult. Zoning changes may be
difficult or impossible because rural county zoning boards are frequently,
exclusively dominated by agricultural interests. Hawk states that officials in Warren County may tell you
that they have never refused anyone a permit, but he notes that the process is
so formidable, time consuming, costly, and difficult that projects are likely
to be abandoned before they can be put in place. The language of a deed in a transfer of property under
the forty-acre rule is revealing and one such example reads as follows: the
parties agree, Òthat the above described property shall be restricted from
further residential development unless or until this covenant is
terminated. . , pursuant to the terms of the Warren County
Zoning Ordinance now in effect or as amended.Ó Hawk contends that, Òclarity and timeliness of securing a
building permit is an issue for people who wish to locate in or near a
community.Ó
There may
be one avenue for escaping the mandate of the forty-acre rule, and this is in
municipal laws affecting zoning. Agriculture areas typically have a zoning
designation of A-1, whereas residential construction typically requires a
zoning designation of ÒR,Ó usually R-1.
Municipalities have authority under state law to regulate zoning within
one and one half miles of a municipal boundary. This may be helpful to persons
wanting to build a home and who are willing to build close to an existing
community, but it still may not serve the interests of persons who prefer not
to live close to their neighbors.
This preference often exists among persons who have grown up on a farm.
There has been some recent construction of new homes on North 14th
Street near Monmouth, within the one and one-half mile limit, but outside the
city limits, technically Òin the countyÓ rather than the city.
Hawk points
out that between 2001 and 2006, the five-year period immediately following the
adoption of the forty-acre rule in Warren County, there was a significant
decline of building permits for homes issued by Warren County. The number of issued permits for
construction of new homes declined from 124 to 99, a total decline of 25
permits. These numbers are
exclusive of the City of Monmouth. Hawk attributes much of this to the
existence of the forty-acre rule. The decline is about 20% of those permits
issued for the prior five-year period.
Hawk also notes that Henderson County with less than half the population
of Warren County is issuing more building permits than Warren County. Henderson
County has not adopted the forty-acre rule, nor has any other county, which is
adjacent to Warren.
Moreover,
when comparing the Òsix southern townships of Warren County,Ó for the same
period, the numbers reflect a decline from 26 to 15, a total of 11
permits. This loss is 42% of
permits issued in the prior five-year period. ÒThese six townships surround
Roseville, [and are] a significant loss in the potential support for the
village business people,Ó according to Hawk. Roseville, which is HawkÕs home community, is situated near
the south end of Warren County and is near to, but bypassed by Route 67, which
is a four-lane highway between Monmouth and Macomb. HawkÕs presentation
includes a map of the southern part of Warren County, showing a circle with a
five-mile radius with Roseville at its center. On this map is 100 red ÒcrossesÓ denoting a home that is
gone, torn down in the last fifty years. In the face of the reduction in the
numbers of rural homesteads, due to farm consolidation Hawk comments, ÒWe need
non-farmers to help support the Roseville merchants and retailers.Ó He believes that the forty-acre rule,
which complicates residential construction on potential rural building sites,
interferes with that.
To
illustrate the general rural decline, HawkÕs presentation shows a comparison of
Roseville business today with fifty years ago. Today there are ten businesses, representing nine categories
of business, for example, gas station, bowling alley, skating rink, bank,
grocery store, restaurant, etc.
Fifty years ago there were thirty-one businesses in seventeen different
categories.
Hawk also
includes census data for five counties in the area, including Warren, Mercer,
Henderson, McDonough, and Knox. The three most rural counties experienced
population decline in the last 106 years, while the more ÒurbanÓ counties of
Knox and McDonough experienced population increases in the same period. Special factors may explain the growth
in these two counties. In Knox
County it may correlate with industrial growth, and in the case of McDonough
County it may correlate with the growth of Western Illinois University. The latter two counties have also
experienced population decline since their peak year of 1980. Using HawkÕs calculations for the last
106 years, Warren County declined by 25%, Mercer by 20%, and Henderson by
28%. In contrast, McDonough increased
by 12% and Knox increased by 21%. In 1980 all of the counties experienced a
Òboomlet,Ó reaching their highest point in several years and then the trend
began to reverse and once again go into a decline for all the counties. This
1980 national rural ÒboomletÓ in the population literature is called Òthe rural
renaissance,Ó discovered in 1975 by a Census Bureau Demographer. Since 1980, McDonough has declined by
15% and Knox has declined by 14%, Henderson declined by14%, and Mercer declined
by13%,. For Warren County, the only county of the five that has adopted the
forty-acre rule, in that same period the population decline was 20%, the
largest decline in the five counties.
These trends are similar to the trends experienced nationally for many
rural areas, and while it may be difficult to reverse the pattern, it is
probably not a good idea to aid and abet it.
This issue
probably even merits national concern because the depopulation of rural areas
is driven by more fundamental factors than the forty-acre rule alone. It has been described as a migration
from the Òfrost beltÓ to the Òsun belt,Ó leaving an industrial Òrust belt.Ó
These larger trends have not been limited to northern, de-industrializing
cities but have included migration out of rural areas and smaller
non-metropolitan communities as well.
The
repopulation of these rural areas could serve beneficial purposes for some
small communities in decline, and some potentially even facing eventual
extinction. The benefits would
occur to the county and to school districts among others. Hawk identifies six areas of benefit
from allowing construction of homes in agricultural areas for Warren
County: (1) New real estate taxes
are created, funding for the county, township, fire departments, schools, colleges
and other entities; (2) Jobs for tradesmen are created & materials are
purchased; (3) additional school enrollments produce additional state aid and
additional real estate taxes to support schools; (4) Salaries of the new
homeowners support local retailers, merchants, and banks, (5) Additional people
potentially lend support to churches, civic organizations, school functions,
private clubs, little leagues, and other community activities, and all in all
(6) it would create a healthier community to attract commercial or industrial
enterprises.
A question
that remains unanswered for those who are skeptical of the wisdom of the rule
in its present form is, ÒWhat is the good that is supposed to accrue to Warren
County by the existence of this rule? And, is there some valued purpose that citizens do not
know about?Ó In answering these questions, it cannot rest upon an alleged
scarcity of farmland. There is
little else in Warren County. Does
the forty-acre rule, especially in its present form, reflect an unwitting and
unstudied commitment by the Warren County Board or is it merely malignant
neglect accelerating the demise of small communities in their jurisdiction,
ironically, all in the name of Òpreservation?Ó Hawk hopes that they will reconsider. For those who are weary of the whole
debate, the question may be for both opponents and proponents of the rule,
ÒWhat plan do you have in place to meet the housing needs and encourage
development in the communities, with or without the forty acre rule?Ó
Richard W. Crockett resides
in Monmouth and is retired from Western Illinois University where he directed
the Graduate Program in Public Affairs and Administration.