How about this:
-No claiming within the 3 plot range of a town without permission
-If someone claimed a plot outside of the 3 plot range, the original town can expand inside the 3 plot range only when the other town is not making use of the plot
-When the original town needs to expand out of the 3 plot range, and the 2nd town is not making use of their plot, the 2nd town has to remove the claim so that the original town can claim it
-Staff considers what's making use and what's not
If the last 2 is added then +1
This is so that towns cant force another active town to move