When Towns Become Cities: How Massachusetts Communities Decide Their Future©️ By Felina Silver

Why do some Massachusetts towns become cities while others resist? A look at governance, history, and community identity.

Why Massachusetts Treats City Status Differently

In Massachusetts, becoming a city is not something that happens automatically. Unlike many states where population size alone determines municipal status, communities here must actively vote to change their form of government. That choice—often debated for years—reveals how residents balance tradition, efficiency, and local identity when planning for the future.

Town Meetings and the Roots of Direct Democracy

At the heart of this debate is governance. Most Massachusetts towns operate through town meetings, where residents vote directly on budgets, bylaws, and policies. This system has long been praised as a cornerstone of democratic participation. Alexis de Tocqueville famously captured its significance when he wrote, “The town meeting is to liberty what primary schools are to science; it brings it within the people’s reach.” For many residents, this direct involvement is worth preserving, even as towns grow larger and more complex.

Cities, by contrast, operate under charters that establish mayors, city councils, or city managers. These systems are designed to manage larger populations and expanded public services. With only 39 cities and 312 towns, Massachusetts’ municipal landscape shows a clear preference for town-based governance rooted in history.

Framingham: When Growth Forces Change

Few places illustrate the tension between tradition and modernization better than Framingham. Founded in 1700, it remained a town for more than 300 years despite its population growing to nearly 70,000. Residents repeatedly rejected proposals for a city charter, concerned about losing the intimacy of town meeting governance. In 2018, however, Framingham finally became a city. The decision echoed John F. Kennedy’s warning that “Institutions must advance and keep pace with the times, or they soon become useless.” Administrative efficiency ultimately outweighed tradition.

Industrial Growth and Early City Transitions

Other Massachusetts cities transitioned much earlier, driven by industrialization. Brockton, once part of Bridgewater, experienced rapid growth in the nineteenth century due to shoe manufacturing. By 1881, town government could no longer meet the demands of an expanding workforce, leading Brockton to incorporate as a city.

Quincy followed a similar path. Originally part of Braintree, it grew rapidly through railroads, quarrying, and shipbuilding. Becoming a city in 1888 allowed Quincy to better coordinate infrastructure and public services as its connections to Boston strengthened.

Worcester and the Rise of Representative Government

Worcester’s incorporation as a city in 1848 reflects the broader industrial history of New England. As canals, railroads, and manufacturing transformed the city into a regional hub, representative government became a necessity. Today, city charters are often described by the Massachusetts Municipal Association as “a local constitution, defining the structure and powers of municipal government.”

Why Some Large Towns Remain Towns

Not every large community has chosen city status. Brookline remains one of Massachusetts’ largest towns, despite frequent debate. Supporters of a city charter argue it would modernize governance, while opponents fear higher taxes and reduced citizen participation. For now, Brookline continues to favor direct democracy over administrative restructuring.

Shrewsbury faces a similar crossroads. Rapid growth has increased demand for public services, prompting studies on whether city governance would be more effective. Its indecision mirrors a broader statewide conversation about how to govern growing communities without sacrificing local identity.

When Communities Lose the Power to Choose

Some towns never had the chance to decide their fate. In the 1930s, Dana, Prescott, Enfield, and Greenwich were dissolved to make way for the Quabbin Reservoir. Others, such as Dorchester, were absorbed into Boston. These cases remind us that municipal identities can disappear entirely under regional and economic pressures.

What These Choices Say About Massachusetts

Massachusetts’ town-to-city transitions are about far more than population thresholds. They are political and cultural decisions shaped by history, economics, and civic values. As John Adams once argued, “Local government is the foundation of a free society.” Whether a town becomes a city—or chooses not to—reveals how residents define democracy, community, and their vision for the future.

Footnotes / References

1. de Tocqueville, A. Democracy in America. 1835.
   (Commonly cited translation; quote widely used in discussions of town meetings.)
2. Massachusetts Municipal Association.
   Municipal Charters and Forms of Government in Massachusetts.
   (Defines a city charter as a “local constitution.”)
3. City of Framingham.
   History of Framingham’s Transition to City Government, 2018.
4. City of Brockton.
   Historical Overview and Incorporation History, 1881.
5. City of Quincy.
   Municipal History and City Charter Information, 1888.
6. City of Worcester.
   Worcester’s Incorporation and Industrial Growth, 1848.
7. Kennedy, J. F.
   Remarks on Institutional Change, various speeches, 20th century.
8. Adams, J.
   Collected Works of John Adams, on local government and republicanism.