Sheridan, Indiana Comprehensive Plan

SHERIDAN, I NDIANA COMPREHENSIVE PLAN 2013 SHERIDAN COMPREHENSIVE PLAN

Sheridan Plan Commission public hearing and adoption: 11/7/13 Sheridan Town Council adoption: 11/14/13

2 Sheridan Comprehensive Plan TABLE OF CONTENTS

Chapter 1: Acknowledgements ...... 4 Chapter 2: Introduction ...... 6 Chapter 3: Vision and Plan Summary ...... 10 Chapter 4: Building Capacity ...... 16 Chapter 5: Community Character ...... 27 Chapter 6: Land Use ...... 36 Chapter 7: Economic Development ...... 58 Chapter 8: Housing ...... 70 Chapter 9: Natural Resources & Recreation ...... 82 Chapter 10: Transportation ...... 95 Chapter 11: Utilities ...... 109 Chapter 12: Implementation...... 118 Chapter 13: Appendix ...... 138

Sheridan Comprehensive Plan 3 ACKNOWLEDGEMENTS

4 Sheridan Comprehensive Plan

ACKNOWLEDGEMENTS 1 ACKNOWLEDGEMENTS

Community ownership is key to the success of any plan. For this reason, we wish to acknowledge the participation and hard work of Sheridan’s citizens. Residents who were interviewed, attended focus groups or took part in public meetings all made valuable contributions.

Thanks also to the Indiana Office of Community and Rural Affairs (OCRA) for funding this planning project.

Special thanks are extended to Town Councilwoman Brenda Bush for her tireless work on the plan and to the Stephenson Family Foundation and Bill and Ann Stone for their generous contributions.

The steering committee was comprised of:

Brenda Bush Town Council Tom Cain Building Commissioner Parvin Gillim Chamber of Commerce David Kinkead Town Council, President John Patrick Adams Township Trustee Ron Stone Community Member Craig Wallace Economic Development Commission President

Members of the consulting team who facilitated the process are grateful for the opportunity to learn more about your community. Thank you!

Scott Burgins, SDG Cory Daly, HWC Engineering Claire Linnemeier, SDG Rex Dillinger, HWC Engineering

Sheridan Comprehensive Plan 5 INTRODUCTION

6 Sheridan Comprehensive Plan

INTRODUCTION 2

The comprehensive plan is Sheridan’s guide to the The comprehensive plan is an advisory tool for future. It answers fundamental questions such as: the town council, plan commission, board of public works, board of zoning appeals, staff and interested What do we want to change? citizens when land use changes are proposed. These What do we want to protect? changes cover a wide range of topics such as new roads, subdivisions and commercial developments. How can a community change what it doesn’t like while protecting what it does? One method is land The plan also covers environmental issues such as use planning, which lays out the town’s priorities and sustainability and smart growth. sets goals on how to reach them. But the comprehensive plan is not the same as Decisions made without reference to a plan are zoning regulations. That more detailed level of frequently reactionary, responding only to specific guidance is reserved for ordinances adopted during short-term problems or proposals. But a long-term the zoning and subdivision control process. In many view is needed in order to keep the town from cases, though, the comprehensive plan builds the growing or shrinking simply by accident. It is vital foundation for zoning regulation changes. for decision-makers to have a shared reference point, or at least a collective set of facts. This document expresses general community agreement, as interpreted through a nine-month Other potential benefits of planning include process including steering committee meetings, directing development to areas with the capacity to interviews, visioning workshops, focus groups and support it, making sure adjacent uses are compatible public hearings. and protecting property values. The plan unfolded in stages, moving through baseline research, creating a vision for the future and setting community priorities before developing goals, strategies and ultimately an implementation plan. It is long-range in orientation – intended to reach out 15 to 20 years – but is specific enough to guide the day-to-day activities of the town’s elected and appointed officials.

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2 INTRODUCTION

THE PLANNING PROCESS Steering Committee Meetings: The committee In Indiana, comprehensive planning is permitted by met six times to set priorities and discuss options. the 500 Series of Title 36-7-4 of the Indiana Code. Review teams made up of committee members This law empowers towns, cities and counties to edited every chapter. adopt plans. Project Website: A website - www.sdg.us/Sheridan- Plans must be evaluated and updated as the comprehensive-plan - was used to post all of the community changes. These changes can be gradual minutes from steering committee meetings as well or sudden. Population numbers may steadily as draft chapters of the plan. increase over 25 years but a sudden loss of a major employer could cause a sharp drop within a USING THE COMPREHENSIVE PLAN three-year span. Or the location of a new housing For the comprehensive plan to produce results, it subdivision or a highway improvement project could must be understandable and be put into practice. quickly increase the population. The following paragraphs will assist in understanding how to use the plan. The creation of the comprehensive plan was overseen by a steering committee comprised of Topic Chapters elected officials and residents. Community outreach Topic chapters include land use, economic efforts included: development, housing, natural resources and recreation, transportation and infrastructure, and Key Stakeholder Focus Groups: Focus groups utilities. The chapters are mostly self-contained were held to gather input from representatives from economic development, downtown, housing and neighborhoods, recreation and utilities.

Key Stakeholder Interviews: Representatives from utility companies, officials from county-wide organizations and others were interviewed during the process.

Public Meetings: Public meetings were held to gather input about local goals.

8 Sheridan Comprehensive Plan

INTRODUCTION 2

examinations of specific issues. They include The plan also suggests changes to the zoning code research, goals and objectives. Besides making and subdivision regulations. the reader well versed in the topic, they outline years of projects for tackling problems. All of the Tips for Citizens recommendations are gathered together in the After finding your house on the future land use map, Implementation Plan. the next step is to read up on community issues that interest you. For example, consult the Land Tips for Plan Commissioners & Town Officials Use or Housing chapters. When properly applied, a comprehensive plan can make the life of the decision-maker easier. Changes to the Comprehensive Plan Community leaders can point to the research or The final word on the Town of Sheridan maps while explaining how they reached their Comprehensive Plan is that circumstances change, decision. They can refer to the input of the local and the plan should be modified to change along leaders and residents whose opinions helped shape with them. the plan’s goals. This may not mean a complete update, but every They can also ask themselves how they make year or so the plan commission, staff and others decisions without a plan. Certainly their experience should review the plan to make sure it is current. in Sheridan guides their judgment, but a group of people making decisions based on their individual It would be a poor use of the resources poured into perceptions may not lead to a shared vision of the creating a plan to let it slowly grow outdated, while town’s future. The comprehensive plan provides a the need for current planning does not. defensible, unified vision.

Tips for Developers Developers typically ask for “more predictability” from decision makers in order to maximize their investments. This plan spells out the community’s preferred future; where it wants to extend infrastructure and where it wants housing, industrial and commercial development.

Sheridan Comprehensive Plan 9 VISION & PLAN SUMMARY

10 Sheridan Comprehensive Plan

VISION & PLAN SUMMARY 3 VISION AND PLAN SUMMARY Growth is coming. The third notable feature is tied to geography. Faster growth happened first in the towns closest to This chapter makes the case that Sheridan is Indianapolis, and has been moving northward. likely to experience some of the tremendous development that’s overtaking most of Hamilton Most likely Sheridan has been spared simply as County. It also spells out the town’s vision for a product of location; it is in the county’s far protecting its rural character from the downsides of northwest corner. But that is changing. While the growth. town isn’t physically closer to Indianapolis, high density urban development is moving closer to the The next chapter, Building Capacity, explains how town. Other changes, such as making U.S. 31 more the town can make investments now to prepare for streamlined, will make Sheridan seem closer to and steer opportunities as they arise. metropolitan Indianapolis.

What is the evidence for growth? The following And there is no slowdown in sight. The Indiana chart is notable for a few things. The first is that Business Research Center projects that Hamilton Sheridan is one of the few Hamilton County County will continue to be the state’s fastest communities without explosive population growth. growing county until 2050, when the population will be double what it is today.

So, growth is coming. How does the town want to prepare?

In 2012, residents embarked on a visioning exercise to identify what they wanted for the future. One part of the process was establishing what stage of community life residents believed the town was in.

The stages of “impasse” and “catalytic” received the most votes. These two in-between stages suggest The second is that the steepest growth started the community has stagnated but there is energy around 2000. It’s been slowed somewhat by and a sense of urgency to work on revitalization. the recession but is likely to pick back up as the The process also established what the town was economy recovers. proud of, including:

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3 VISION & PLAN SUMMARY

Future Vision • The community is vibrant, welcoming, strong and The group also crafted a vision statement: diverse with a balanced economy that still has rural and agricultural heritage. Sheridan is a dynamic community within Indiana’s • A state-of-the-art school system. Heartland. We honor our heritage while promoting • Green spaces, community engagement and balanced growth, cultural and economic diversity and responsibility. lifelong learning. Our values embrace a quality of • Skilled workforce and inviting tax rate. life and place that inspires citizen engagement and community building. What Sheridan Is Doing Well • High quality schools and medical providers. • A nice Main Street, a variety of churches with To achieve the vision that town will have to make community programs and well-done festivals. careful plans and then work hard to carry them out. • Amazing parks. Growth is coming, and local leaders must decide • A spirit of community that keeps the public now if they will prepare to take advantage of it or informed and offers opportunities for people to just wait and see what happens. become engaged. Fortunately, the current town council has a penchant What Is Missing for action, as shown in the 2013 town report called • Good-paying jobs. “A Message from the President Sheridan Town • Recreation and opportunities for jobs. Council David Kinkead.” He said: • Fiscal conservativeness. • Affordability for residents and businesses. “In governing, the town council is not fearful to act, • Engagement of residents. to make changes that other past leadership could • Population growth and creation of wealth. avoid. The economic pressures and funding shortfalls • Jobs for all ages. give us problems, but they also present new opportunities if one is open to reframing questions. Redevelopment Strategy • Acquisition of parcels - for parking, demolition, We must be aggressive in our pursuits. Not all the clean-up sites and greenspace. changes that will be tested will work, but we can and • Tax increment finance districts. will change again if needed - it is all a process. These • Old mobile homes ordinance. are difficult times requiring serious thinking and a • Relocate businesses that are not storefront to new open mind.” the industrial park.

12 Sheridan Comprehensive Plan

VISION & PLAN SUMMARY 3 GOALS OF THE PLAN • Recognize that consistent and even-handed The following chapters lay out what Sheridan’s enforcement of regulations is critical to leaders must do to transform their vision maintaining healthy neighborhoods. into tangible progress. Each chapter of this • Create incentives to encourage neighborhood comprehensive plan concludes with a series of goals investment and growth. and an accompanying list of objectives. Those goals • Select a small, core neighborhood close to are compiled below. downtown as a pilot project for revitalization.

Land Use Goals Natural Resources Goals • Create design standards to protect Sheridan’s • Continue to build upon the success of the historic downtown. local parks and recreation facilities to leverage • Adopt a zoning ordinance to limit junkyard additional future potential for the community. locations within the community. • Work to protect and enhance important natural • Consider suggestions on how to curb vandalism resources. within the community. • Protect and preserve the agricultural heritage of • Consider implementing an environmental Sheridan by taking steps towards identifying and nuisance ordinance to keep Sheridan safe and protecting the most productive farmland. livable. • Take proactive steps toward reducing the • Update the city’s zoning ordinance. impacts of local flooding on development • Update the city’s subdivision control ordinance. potential and decreasing Sheridan’s potential impact on the regional water supply. Economic Development Goals • Ensure there is adequate industrial land ready for future development. • Diversify the tax base so that homeowners account for less than 80 percent of gross assessed property values. • Create a downtown tax increment finance district to raise resources for development. • Explore public-private partnerships for downtown projects.

Housing • Increase involvement with Housing and Neighborhood Development (HAND), encouraging and aiding them in their projects for Sheridan.

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3 VISION & PLAN SUMMARY

Transportation Goals • Ensure local roads are maintained and improved in a manner which allows for efficient local travel and provides flexibility for future commercial and industrial development. • Clean up Sheridan’s gateways and create a unique local identity through focused gateway and corridor improvements and an increased presence along regional travel corridors. • Take advantage of the Monon Rail corridor to enhance Sheridan’s regional presence and create new development opportunities. • Complete a comprehensive transportation development strategy which provides improved pedestrian and bicycle access throughout town.

Utilities Goals • Take initial steps to construct an expansion to the town’s wastewater treatment facility to avoid a potential sewer ban. • Implement phased plan to upgrade town’s aging water mains. • Take incremental steps toward improving local drainage through stormwater system improvements

14 Sheridan Comprehensive Plan Sheridan Comprehensive Plan 15 BUILDING CAPACITY

16 Sheridan Comprehensive Plan

BUILDING CAPACITY 4

BUILDING CAPACITY wasting time, energy and money on lesser issues. This report predicts a gap between the growth How do you get the community to agree on what issues that Sheridan faces and its current ability to to do first? address them. This planning process started by asking leaders The previous chapter made the case that and residents what they thought were the town’s development is coming. It will be accompanied by most promising opportunities for development. decisions on improving roads, protecting local assets, Their ideas were recorded on the Sheridan revitalizing downtown and updating infrastructure. Opportunity Map on page 19.

This chapter explains ways the town can build its The map shows town features that can be further capacity to address growth. It is vitally important enhanced or areas that need to be improved. The because those challenges loom on the horizon. steering committee then compiled a list of projects that needed to be tackled and put each task into The town learned this year that its operational one of three categories: revenue would be cut by $500,000 because the town learned this year that its operational revenue 1. Must Do’s: Opportunities/issues which must be would be $500,000 less. More money would of addressed, either because they are emergencies or course help bridge that gap, but it’s not the only because they are an impediment to progress. If these thing that is needed to prepare for the future. items are not tackled there could be major short- term and long-term repercussions for the town. As the town tightens its budget and explores ways to raise revenue, it can also build its capacity by: 2. Can Do’s: Opportunities/issues which can be addressed now with minimal capital investment, but • collaborating with community partners which may require championing, organization, and/ • refining its regulations or political will on the part of the community. These • focusing on key issues are not critical items but can be valuable ‘wins’ toward improving the overall perception of the This chapter lays out suggestions for addressing community. some of those topics, but the first step would be reaching agreement on the town’s priorities. This 3. Should Do’s: Projects/opportunities that step alone could increase the town’s ability to get Sheridan should plan on acting upon but which may things done by keeping resources directed on its require capital investment, long-term planning or most serious problems, without inadvertently other requirements.

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4 BUILDING CAPACITY

MUST DO’S • Fix drainage problems first • Investigate possibilities of 4-H development next ◊ Improve Symons - Krause Drain to Biddle Memorial Park. ◊ Pursue 7 to 10-acre retention pond in north- • Explore opportunities for Ashland brownfield, east quadrant of town. south of Opal. ◊ Improve West Road (SR 47 and 246th St.) ◊ 50-acre site with preliminary environmental drainage issues. assessment underway. • Improve/upgrade local roads. • Promote Industrial Park, possibly in cooperation • Create and follow a Sheridan Capital Improve- with IEDC/OCRA. ment Plan to guide funding. ◊ Work with Duke to promote the site. • Make sidewalk improvements and improve con- • Expand senior housing development. nectivity. • Investigate small business/Main Street business ◊ Look into Safe Routes to School Program. development incentives. • Launch a maintenance/homeowners assistance • Investigate ways to improve the reputation of program. Sheridan Schools. • Research annexation or joinder agreement with ◊ Determine community and outside Adams Township perception of schools. • Explore economic development opportunities along west border of Industrial Road.

CAN DO’S • Public safety and code enforcement. ◊ Explore ticketing procedures. • Community Center funding/renovation. ◊ This can be completed in incremental steps as funding is available. ◊ Promotion of the facility will bring more revenue to fund capital improvements. ◊ The town can look into an adaptive reuse plan. • Design development standards for the community, especially in priority areas such as downtown. • Study possibilities for improving gateways into the town at SR 47/SR 38.

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SHERIDAN OPPORTUNITY MAP 4

Corporate Limits

M A

Y E

S E

I H

Elementary School

W K

R E J

246TH

O S

D Floodplain

U H SOUTH Zone A

Potential housing with park as anchor?

LAFAYETTE Middle School

Veteran's Park High School

SPENCER Expansion? A

I FANNING

E K

N O

TINKER A

E S

I Historic Boxley Cabin

T O S

L B

L A U

Veteran's Park U

R A

H J C

Public Library E T

1ST Old Adams Elementary

O A

J School Building

M T

S Issue: How to capitalize 2ND A

241ST I

N on opportunities

L A C 3RD William Krause Drain

Historical Society Museum Y

E Issue: Past Flooding

I A B 4Th 4TH FOURTH 4TH Historic Lamon Road Extension (from 246th to SR38)

T District

S S

E Retention Pond /

O W

J W

M 5TH A 5TH 5TH . H

IT Development Potential D A

T S O

I Town Hall E

H M

O JAYCEE Issue: outside of corporate limits

L E

A I

6TH A

N R

G Community Center

O I

Potential Westside E

L A G Community 7TH

Industrial Housing C 7TH Center Y E

Area? Potential L

I A B

Industrial G N

I 8TH N

Area? 8TH N

N A

O S

H M

A Issue: N A

D T

I 9TH L

I 9TH Odd

R E

M A

H S Commerical Area H Intersection 236TH SR 47 State Road 47 Corridor - Issue: Need Sidewalks

M K

A R

PL A

Potential P Commerical Area E Opportunity / Anchor

R Gateway? U (round-a-bout?) N

T SR

T ARROWHEAD 38

ES O Biddle Park

L A T BRICK Biddle

O M

T P

O EL Expansion

BO CROSSBOW AH

W Brownfield?

A W Potential

K Gateway?

LONGBOW

F E I

H 4H Development?

C C

WARRIOR A

L P

A M SHADETREE

BAR Monon Trail

K Connection

50 acre parcel

F A E

L Owned by Ashland?

G I B FOLIAGE

EAF Brownfield?

BAR

Legend 226TH Corporate Limits Potential CSA Trail Status Agribusiness Sector Open Drainage Issues Lamong Road Connector Planned Main Street Under Development Maple Run Neighborhood

Monon Corridor G

WN estside Commercial - Industrial

M A L

0 500 1,000

V Graphic Scale (Feet)

Sheridan Comprehensive Plan March 2013

Sheridan Comprehensive Plan 19

4 BUILDING CAPACITY SHOULD DO’S BUILDING LOCAL PLANNING • Expand Veterans Park. CAPACITY ◊ Tied to events, work with developer on land Communities who want to build their local planning availability. capacity have multiple tools at their disposal. To • Expand Biddle Memorial Park (brownfield). choose the most appropriate tools the community’s • Extend Lamong Road, perhaps in conjunction planning resources and capacity should be analyzed. with proposed detention project. ◊ Work with county to develop plans/fund That analysis can start with the charts in this project. chapter. In the charts, planning capacity is • Create an historic district/Main Street revitaliza- determined by the highest level that has all or the tion plan. most items checked. Local leaders can go through • Improve SR-47 corridor. each chart for a self-assessment. • Improve SR 47/SR 38 intersection and create a community gateway. This discussion of local planning capacity focuses • Complete Monon Trail expansion. on the technical, managerial, financial and political ◊ This could be tied with development oppor- ability of a local government to carry out a project tunities. or task. It is recognized that many other influences ◊ Look into INDOT Transportation Enhance- can impact or determine a community’s planning ment funding. capacity. All local influences and considerations • Launch a Sheridan promotional campaign. should be analyzed before determining future ◊ Need community improvements first. planning endeavors. • Promote the growth/expansion of the Bluegrass Fever Festival. The purpose of discussing planning capacity is to • Also promote the Harvest Moon Festival. identify the conditions under which individual tools • Address community physical/mental health is- are ideally used. For example, a tool which requires sues. an extensive amount of staff to administer would ◊ Possible partnership with Riverview Hospital. not be the most appropriate tool for a community • Study feasibility of upper-story housing on Main with few or no planning staff to implement. Street. • Preserve agricultural land and rural character.

Items listed above form the basis of the implementation chart in the last chapter. They will be interwo- ven with the goals and strategies from the various chapters. With town priorities clearly laid out, local leaders can focus on how to achieve them

20 Sheridan Comprehensive Plan EVALUATE YOUR LOCAL PLANNING CAPACITY Planning capacity is determined by the highest level that has all or the most items checked. 4 LEVEL 1 LEVEL 2 LEVEL 3 LEVEL 4

We have thought We have a plan We have a plan We have a plan commission about planning for our commission and a board commission and a and a board of zoning appeals that community but do not of zoning appeals with board of zoning appeals consistently follow rules of proce- have a plan commis- rules of procedure. that consistently follow dure and annual training sion. rules of procedure

We do not have any We have a building We have a profes- We have a professional full planning staff commissioner/planner sional full-time planner. time staff of planners and other on staff. trained technical staff.

We have no finan- We rarely designate We occasionally We annually designate financial resources dedicated financial resources to designate financial re- cial resources for community plan- for planning projects. planning projects. sources for community ning projects. planning projects.

We have someone We have a full-time We have a full-time staff mem- who focuses part of staff member who is ber who is dedicated to economic their time on economic dedicated to economic development or redevelopment in development or redevel- development or redevel- addition to other trained technical opment. opment. economic development staff.

We have no or lim- We have limited We have a full range of inspec- ited inspections. inspections and enforce- tions and full-time enforcement ment personnel. personnel.

We have zoning We regularly up- We have additional ordinances and subdivision regula- date our comprehensive such as historic preservation, etc. tions. plan and development codes.

We have a compre- We have additional hensive plan. ordinances such as architectural review, etc.

We have a redevelopment commission.

Sheridan Comprehensive Plan 21 4

PROTECTING NATURAL RESOURCES Natural resources are integral to the identity of the region .These important resources include but are not limited to: agricultural lands; forestlands, karst terrain; stream and the associated corridors and floodplains; wetlands; groundwater resources, including public and private drinking water; wildlife and wildlife habitat, including endangered, threatened, or rare species; and high quality natural communities.

Select the tools below. Tools in gray boxes are NOT recommended for that level of planning capacity.

PROTECTING NATURAL RESOURCES

LEVEL 1 LEVEL 2 LEVEL 3 LEVEL 4

See Increas- Land Ownership and Land Ownership and Land Ownership and Conservation ing Local Conservation Ease- Conservation Easements Easements Fundamental ments Hillside / Steep Slope Protection Hillside / Steep Slope Protection Planning Ca- Hillside / Steep Slope Open Space Planning Open Space Planning pacity Protection Scenic Viewshed Protection Scenic Viewshed Protection Open Space Planning Tree Protection Ordinance Tree Protection Ordinance Scenic Viewshed Forest Protection Forest Protection Protection Agricultural Land Protection Agricultural Land Protection Tree Protection Stream Corridor Protection Stream Corridor Protection Ordinance Wetland Protection Wetland Protection Forest Protection Watershed Protection Watershed Protection Agricultural Land Groundwater / Wellhead Groundwater / Wellhead Protection Protection Protection Stream Corridor Karst Landscape Preservation Karst Landscape Preservation Protection Biodiversity / Habitat Protection Biodiversity / Habitat Protection Wetland Protection Watershed Protection Groundwater / Wellhead Protection Karst Landscape Preservation

22 Sheridan Comprehensive Plan

BUILDING CAPACITY 4 ENCOURAGING ECONOMIC DEVELOPMENT

The nature of economic development practice has changed significantly over the last two decades to focus on competitively-advantaged industry clusters and the elements necessary to attract firms within those clusters.

Select the tools below. Tools in gray boxes are NOT recommended for that level of planning capacity.

ENCOURAGING ECONOMIC DEVELOPMENT

LEVEL 1 LEVEL 2 LEVEL 3 LEVEL 4

See Tax Abatement Tax Abatement Tax Abatement Increasing Economic Development Economic Development Economic Development Strategic Local Strategic Plan Strategic Plan Plan Fundamental Tax Increment Financing Tax Increment Financing Tax Increment Financing Planning Special Improvements Special Improvements Special Improvements Districts Capacity Districts Districts Agricultural Development Agricultural Development Agricultural Development Agriculture and Nature Tourism Agriculture and Nature Agriculture and Nature State Economic Development Tourism Tourism Programs State Economic State Economic Competitive Industry / Targeted Development Programs Development Programs Industry Studies Competitive Industry / Competitive Industry / Targeted Brownfield / Infill Development Targeted Industry Studies Industry Studies Brownfield / Infill Brownfield / Infill Development Development

Sheridan Comprehensive Plan 23

4 BUILDING CAPACITY MANAGING TRANSPORTATION INFRASTRUCTURE

This section of the toolbox presents methods and techniques to effectively direct and manage the development and improvement of transportation and infrastructure systems. Select the tools below. Tools in gray boxes are NOT recommended for that level of planning capacity.

MANAGING TRANSPORTATION AND INFRASTRUCTURE

LEVEL 1 LEVEL 2 LEVEL 3 LEVEL 4

See Capital Improvement Plan Capital Improvement Plan Capital Improvement Plan Increasing Access Management Plan & Access Management Plan & Access Management Plan & Local Policies Policies Policies Fundamental Areawide Thoroughfare Areawide Thoroughfare Areawide Thoroughfare Plan Planning Plan Plan Comprehensive Corridor Plan Capacity Comprehensive Corridor Comprehensive Corridor Interchange Area Plan Plan Plan Areawide Bicycle and Pedestrian Interchange Area Plan Interchange Area Plan Plan Areawide Bicycle and Areawide Bicycle and Traffic Calming Plan & Policies Pedestrian Plan Pedestrian Plan Design and Construction Traffic Calming Plan & Policies Traffic Calming Plan & Standards for Infrastructure Design and Construction Policies Traffic Impact Study Guidelines Standards for Infrastructure Design and Construction Urban Growth Boundaries/Urban Traffic Impact Study Guidelines Standards for Infrastructure Service Area Urban Growth Boundaries/ Traffic Impact Study Traffic Control Device/Signal Urban Service Area Guidelines Warrant Studies Traffic Control Device/Signal Urban Growth Boundaries/ Impact Fees Warrant Studies Urban Service Area Impact Fees Traffic Control Device/ Signal Warrant Studies Impact Fees

24 Sheridan Comprehensive Plan

BUILDING CAPACITY 4 DIRECTING DEVELOPMENT AND GROWTH

Select the tools below. Tools in gray boxes are NOT recommended for that level of planning capacity.

DIRECTING DEVELOPMENT AND GROWTH

LEVEL 1 LEVEL 2 LEVEL 3 LEVEL 4

See Comprehensive Plan Comprehensive Plan Comprehensive Plan Increasing Zoning Ordinance Zoning Ordinance Zoning Ordinance Local Land Use Plans Land Use Plans Land Use Plans Fundamental Downtown Plan / Main Downtown Plan / Main Downtown Plan / Main Street Planning Street Program Street Program Program Capacity Subdivision Regulation Subdivision Regulation Subdivision Regulation Signage & Billboards Signage & Billboards Signage & Billboards Overlay Zones Overlay Zones Overlay Zones Landscape Overlay Landscape Overlay Landscape Overlay Planned Unit Developments Planned Unit Developments Planned Unit Developments Neighborhood Planning / Sub Neighborhood Planning / Neighborhood Planning / Sub Area Area Plan Sub Area Plan Plan Annexation Annexation Annexation Cluster Development Cluster Development Cluster Development Traditional Neighborhood Traditional Neighborhood Traditional Neighborhood Development Development Development

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4 BUILDING CAPACITY

26 Sheridan Comprehensive Plan

COMMUNITY CHARACTER

Sheridan Comprehensive Plan 27

5 COMMUNITY CHARACTER

HISTORY Sheridan lies on the south edge of land that was At the turn of the 20th Century, many industries originally owned by George Boxley, a Virginian remained in Sheridan, making it the second largest merchant and miller who fled from the town to town in Hamilton County with a thriving commercial escape bounty hunters for supposedly leading a district along Main Street. The street was lined with failed slave rebellion in 1816. The town of Sheridan, a variety of stores, a few hotels, banks, lodges and formerly known as Millwood, has vaguely known dwellings. Many of these historic buildings survived origins because many of the town’s records were the 1913 fire that destroyed much of the south end destroyed in 1913 after a fire burned down the town of downtown. hall and other surrounding buildings. After the fire, houses were replaced with commercial Growth was slow in Sheridan until the coming of the buildings. Commercial areas continued to develop Monon Railroad in 1882, which boosted commercial in the decades following WW II, but downtown and industrial development. Industry began clustering Sheridan maintained its character, and many buildings along the railroad near the south end of Main Street. that were constructed from the 1880s to the 1930s The Monon passed through Sheridan at a sharp angle remain standing today. from northwest to southeast and quickly became lined with various mills and factories. Sheridan CHARACTER incorporated in 1886. The discovery of natural gas The Boxley Cabin, named after George Boxley, is on West 3rd Street in 1888 helped the town grow a symbol of Sheridan’s heritage and an attraction even more. Like many other boom towns however, in Hamilton County. It is located on the hilltop of Sheridan’s gas supply eventually dwindled. Sheridan’s Veterans Park and was built in 1828 by Boxley himself.

This national landmark tells the story of how the town came to be and gives a sense of place for the town’s functioning. Today, the cabin is listed on the National Register of Historic Places and still resides on the original hill on which it was built. Guests can tour the cabin during the summer months.

The Monon Trail, another historic landmark in Sheridan, currently runs from SR 47 in the north to Lamong Road in the south. It is a smooth and shady trail that runs through Biddle Park on the south side of town.

28 Sheridan Comprehensive Plan

COMMUNITY CHARACTER 5

Future plans include extending the trail north to the The Sheridan Bluegrass Fever occurs in mid-July each Boone County line as well as connecting south to year and brings together bluegrass enthusiasts with the Monon in Westfield. the sounds of banjo, fiddle, mandolins and guitars.

Sheridan is a small recreational town and is home to Other popular festivals and events include regular Biddle Memorial Park, Veterans Park and Community bluegrass jam sessions, the Boxley Lecture Series, Park as well as youth sports leagues including Sheridan Heritage Celebration, Sheridan Fireside baseball, softball, football, soccer and basketball. Tales, Sheridan Lion’s Club Fish Fry, Critter Showcase, Biddle Memorial Park provides sports facilities for Sheridan Fourth of July Parade/Celebration, Gospel several youth leagues as well as wooded grounds, Times! and Music and Art in the Park. a skateboard park, picnic tables and a pavilion for hosting other events. The Sheridan Historical Museum is downtown on Main Street. The museum was left as a gift by the Veterans Park is home to the historic Boxley Cabin, late industrialist Kenneth Biddle and is managed by the symbol of the town’s founding, as well volunteers. Family archives and rural life events and as the Sheridan Bluegrass Fever summer festival social affairs are also kept on records in the museum. and other heritage/cultural events. Community Park has numerous old growth trees, a playground Restored framed photographs, unique tools, kitchen and a community center. Several events are held items and logging artifacts can be found in the throughout the year at the Community Center museum along with restored Civil War collections, including community dinners, pancake breakfasts and including a flag carried by locals in major battles. a fish fry. Genealogy collections feature more than 500 family histories and research, and old copies of the CULTURAL RESOURCES “Sheridan News” can be found for those looking for Sheridan sponsors festivals and events year round. more detailed information. One is the Sheridan Harvest Moon Festival. This event occurs in late September at the Biddle Memorial Park and features craft and food vendors, musical entertainment, a classic car and motorcycle show and a Pumpkin Chuck contest, among other attractions. In conjunction with the Harvest Moon Festival, a 5K marathon is run through the streets of Sheridan.

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5 COMMUNITY CHARACTER

Education Economic Development Public Schools: Sheridan Chamber of Commerce Sheridan Elementary School 101 East Second Street Sheridan, IN 46069 24795 Hinesley Rd. Sheridan, IN 46069 Public Institutions Sheridan Middle School Sheridan Public Library 3030 W. 246th St. Sheridan, IN 46069 103 W. 1st St. Sheridan, IN 46069

Sheridan High School Sheridan Airport-514 24185 Hinesley Rd. Sheridan, IN 46069 27045 Jerkwater Rd. Sheridan, IN 46069

Non-public Schools: Churches Walnut Grove Christian Prep School The following list of churches located in Sheridan, IN 6070 N. 900 E. Sheridan, IN 46069 was compiled from a Google Maps search.

Sheridan Christian Academy Issachar Church 1478 W. SR 38 417 S. Main St. Sheridan, IN 46069 Sheridan, IN 46069 Christian Church Healthcare 107 W. 3rd St. Sheridan, IN 46069 Health Care Services 803 S. Hamilton St. Sheridan, IN 46069 Sheridan United Methodist Church 207 E. 2nd St. Sheridan, IN 46069 Sheridan Rehab & Healthcare 803 S. Hamilton St. Sheridan, IN 46069 Boxley United Methodist Church 26121 Six Points Rd. Sheridan, IN 46069 Fire Departments Sheridan Fire Department 506 S. Main St. Sheridan, IN 46069

Law Enforcement Sheridan Police Department 506 S. Main St. Sheridan, IN 46069

30 Sheridan Comprehensive Plan

COMMUNITY CHARACTER 5

Christ Covenant Orthodox Presbyterian Church 6070 900 E. Sheridan, IN 46069

Christ Tabernacle 1602 W. 236th St. Sheridan, IN 46069

Sheridan Friends Meeting 301 E. 6th St. Sheridan, IN 46069

Six Points Wesleyan Church 1545 W. 226th St. Sheridan, IN 46069

Sheridan First Baptist Church 205 E. 3rd St. Sheridan, IN 46069

Christ Community Church-Lamong 20854 Lamong Rd. Sheridan, IN 46069

Big Springs Community Church 11005 E. 200 N. Sheridan, IN 46069

Bible Church 1478 Indiana 38 Sheridan, IN 46069

Faith Apostolic Church 603 S. White Ave. Sheridan, IN 46069

Sheridan Comprehensive Plan 31 DEMOGRAPHIC HIGHLIGHTS

32 Sheridan Comprehensive Plan

DEMOGRAPHIC HIGHLIGHTS 5 HIGHLIGHTS OF THE DEMOGRAPHIC PROFILE

INTRODUCTION This section summarizes the town’s demographic profile. The complete report, along with an explanation of the methodology, can be found in the Appendix.

Population Figure 4.1 shows U.S. Census counts of Sheridan’s population for each decade going back to 1920. Over the seven decade stretch between 1920 and 1990, Sheridan grew by a mere 16 percent. Since 1990, however, Sheridan’s population grew by more than 30 percent, as the greater Indianapolis metropolitan area began rapidly expanding outward beginning in the 1990s, sparking significant growth throughout Hamilton County. The most recent data available from the Indiana Business Research Center (IBRC) indicate that Sheridan’s 2011 population reached 2,744, making it the 46th fastest growing town or city in Indiana (out of a total of more 600 towns and cities in the state), growing by more than two percentage points between July 2010 and July 2011 alone.

Figure 4.2 shows population projections in five-year increments for Hamilton County going up to 2050.

Sheridan Comprehensive Plan 33

5 DEMOGRAPHIC HIGHLIGHTS HIGHLIGHTS OF THE DEMOGRAPHIC PROFILE

Age Sheridan’s age distribution - which plots the percentage of the total population in different age groups - roughly mirrors the statewide average, though there are some noteworthy differences. Figure 4.3 on the previous page compares the proportion of Indiana’s population (in dark purple) with the proportion of the Sheridan’s population (in light purple) in different age groups.

School Enrollment Figure 4.4 shows Indiana Department of Education (IDOE) enrollment statistics for Sheridan Community Schools over the past five school years. Enrollment has remained more or less steady. Since 2007, enrollment has declined by about 4 percent, though this represents a decline of only 44 students.

Educational Attainment Figure 4.5 shows the distribution of Sheridan’s population aged 25 and older by education level in comparison to statewide statistics. It reveals that there are nearly 5 percent more Sheridan residents without a high school degree (diploma or G.E.D.) than at the state level

On the other end of the spectrum, there are nearly 5 percent fewer with a Bachelor’s degree and more than 6 percent fewer with a graduate or professional degree. 34 Sheridan Comprehensive Plan

DEMOGRAPHIC HIGHLIGHTS 5

Poverty Figure 4.6 on the previous page shows the percentage of individuals falling below the poverty threshold in Sheridan, Hamilton County, and Indiana over a two-decade period. A common theme is that poverty dropped slightly for all three areas from 1990 to 2000 and spiked between 2000 and 2007- 2011 as the economic downturn set in. Though Sheridan’s most current poverty rate estimate of 9.3 percent is better than the statewide rate of 14.1 percent, it still trails the Hamilton County poverty rate by nearly 5 percent and is about 3.5 percent higher than the 2000 figure.

Sheridan Comprehensive Plan 35 LAND USE

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LAND USE 6

KEY POINTS • Several factors make it crucial for Sheridan to plan for its future:

◊ Westfield has big plans for growth which will have impacts that could soon reach Sheridan’s planning jurisdiction. ◊ Residential development that was occurring in town before the real estate market collapsed could return. ◊ Long-term problems with drainage are being addressed, creating opportunities for expansion. ◊ Most of what the town wants to protect about its rural heritage is still in place – and residents want to keep it that way.

• For these reasons, a fairly aggressive land use plan is needed to capitalize on opportunities and avoid potential problems.

Natural Conditions Existing Land Use Map Geology is the foundation of local land uses. One of The town controls zoning for inside its boundaries the biggest historical determinants in Sheridan was and for parts of its extraterritorial jurisdiction (the glaciers, which flattened the land through glacial drift two-mile fringe). some 15,000 years ago during the Wisconsin Glacial Period. Much of the land left behind from the glacial Most of the areas immediately outside town borders drift was ideal for farming, and land within Hamilton are marked for higher-density residential or for County is still actively farmed today. planned unit developments.

More information on the geology and natural The Sheridan Existing Zoning Map can be features shaping Sheridan’s growth potential are found on the following page. The section in this discussed in the Natural Resources Chapter of this chapter called Zoning Code Review proposes some plan. revisions to the existing code that would have an impact on the zoning map.

Sheridan Comprehensive Plan 37

6 Sheridan Existing Zoning Map

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38 Sheridan Comprehensive Plan

LAND USE 6 CHALLENGES AND OPPORTUNITIES and ensure that those aspects of the community Growth Potential which are most important to its identity are Sheridan’s location in the northern corner of maintained. Hamilton County has meant it’s been largely immune from the spread of the Indianapolis Working with Westfield metropolitan region. The cascading effects of Westfield’s growth are the most important short- This is no longer the case. term concerns Sheridan must The southern two-thirds address. of Hamilton County has become the most rapidly As part of this planning growing part of the state. process, Sheridan leaders This growth is moving met with Westfield officials, northward at an increasing including the mayor, to discuss pace. shared interests. The most exciting project is Westfield’s Sheridan’s immediate Grand Park, a multi-million neighbors, which were once dollar development that small towns, have become includes world-class sports large suburban cities. facilities. This trend has finally reached the southern How big will the impact be? boundary of Sheridan’s A youth soccer team has an planning jurisdiction at the average of 15 children, each Washington Township-Adams accompanied by 2.5 other Township line. family members, according to Westfield’s research. Families will be in the area Sheridan is at a turning point; it can embrace for multiple nights and will be looking for places approaching growth and take full advantage of the to sleep, eat and relax in while away from sports opportunities which come with it, or, it can resist events. (or ignore) the inevitability of change and allow development to alter the shape and identity of the Westfield welcomed Sheridan to provide visitors community. with opportunities for all of those activities. “If you had hotels in Sheridan, they’d be booked for By developing, and adhering to, a future land use the next two years during the sports season,” a plan which directs growth where the community Westfield planner said. wants it, the town can take ownership of its destiny

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This common interest creates an opportunity to form There are other issues to consider as well. a partnership with the City of Westfield to undertake For example, Sheridan would have to carefully ensure land planning and other infrastructure activities in a that the revenue brought in by annexation would pay cooperative, rather than a competitive, manner. for the required extension of services to the new area. Working with Adams Township Sheridan’s leaders have an obligation to consider However, there are intermediate steps Sheridan can Adams Township and the opportunities it presents to take to both protect its interests and build a stronger the town. The 48-square-mile area, with a population relationship with the township. of almost 5,000, has nice homes, available land and lots of potential. The first step is simply engaging township representatives in discussions about the future. This Local leaders have discussed annexing parts of the comprehensive plan offers the basis of many talks on township to take advantage of the residential growth. mutual interests. The town council has been hesitant to pursue it, however, because of concerns that Adams Township The second step is discussions about Sheridan residents will resist. Those concerns are probably extending its planning and zoning control to include well founded. the township. This would help protect the town’s interests but would not result in additional taxes to Township residents will not willingly allow themselves township residents – it is not an annexation. to be annexed, said Adams Township Trustee John Patrick during this planning process. “It would not The project could be carried out using a legal happen, I promise you,” he said. procedure called a joinder agreement. According to the town’s attorney, an interlocal agreement with the township is required for Sheridan to assume planning and zoning responsibilities – it is not an issue for referendum.

Adams Township Trustee John Patrick was more optimistic about the township signing on to a joinder agreement. “I think it would fly,” he said. “But you’d have to sell it.” In other words, education and continuing dialogue would be needed.

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In summary, the town should begin immediate FUTURE LAND USE MAP discussion with township leaders on common As development moves closer to Sheridan’s borders, interests while pursuing a joinder agreement. The measures should be taken to protect the town’s possibility of annexation may arise on its own as the interests in planning for the surrounding area. This relationship deepens between the two parties. oversight will allow the community to direct growth where it makes sense and to preserve assets which Regional Detention Project contribute to the town’s identity and commercial Hamilton County is planning a regional detention base. project within Sheridan’s current planning jurisdiction. This facility is being designed and Sheridan is about 2.139 square miles. Within those constructed to help alleviate major regional borders are more than 500 acres of undeveloped stormwater issues, including local flooding issues agricultural land. within Sheridan. In addition, there are nearly 8,500 acres of With this project comes an opportunity to undeveloped agricultural land within the town’s capture additional value in the form of a regional current planning jurisdiction. This amount of recreational and residential facility. Sheridan should available land brings with it the risk of allowing continue to work with the county to determine the development to occur in a piecemeal fashion timeframe for completion of the project. because of the apparent ‘abundance’ of availability.

Through development of mixed-use overlay zones, Many factors weigh into the decision for where the town can define the form and function of the to direct development and Sheridan has a vested land surrounding this facility and create a vision interest in ensuring that growth is directed where for a development which will be attractive to many the town can provide required resources. people and businesses.

Once this facility is constructed, the town should investigate annexing the land surrounding the facility and move forward with plans to allow future development which can take advantage of this large water body. There are many peer examples within the state, including nearby Anderson, which Sheridan can turn to for inspiration and guidance on what the land surrounding the detention facility can become.

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For example, allowing growth in an area which does New industrial land is directed to the western not have utility services will require the town to use edge of town. The land that is being proposed for its limited resources to install the required services. a retention facility has been marked as “mixed This can be costly and is a risk which can be avoided use,” allowing a combination of residential and if the town adheres to a plan to allow development recreational uses. where utility services currently exist. Sheridan Potential Growth Areas Map on page By planning for future growth Sheridan can make a 45 shows what Sheridan’s jurisdiction would look calculated assessment of its available resources and like if it assumed planning and zoning control of can plan ahead for costly expansion of town services Adams Township, as discussed earlier in this chapter. to areas where growth is desired. Zoning for that new land would need to be worked out with Adams Township officials. Two maps show growth scenarios for Sheridan. These maps contain zoning recommendations which GUIDELINES FOR FUTURE DECISION take into consideration factors such as available MAKING utility services, adjacent land uses and anticipated Comprehensive plans should list community transportation network upgrades. priorities and identify tools to achieve the plan’s goals. This section introduces important but The first scenario is shown in theSheridan unresolved land use issues for Sheridan, and outlines Future Land Use Map, on page 44. This map possible decision points. combines potential future growth areas with the existing zoning map to present one vision on how Design Standards the town might expand. Design standards are ordinances that require certain Note that features for new buildings. They can be very specific, residential including building materials and colors, or they growth is can be very simple. Many communities are wary slotted beyond of design standards because they don’t want to do the northern, anything that might discourage new construction. eastern and parts of the On the other hand, many communities are southern crestfallen to see someone construct a new business boundary. that is totally out of character with everything around it.

42 Sheridan Comprehensive Plan

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Sheridan should consider a small set of design For example, after putting in its first public guidelines to protect one of its key assets – a restrooms, many communities are stunned to historic downtown. discover the imagination and energy that vandals put in to demolishing it. Table 5.2 on page 46 lists different components of commercial design standards and their typical The Urban Institute offers suggestions on how to implementation tools, indicating the difficulty in curb vandalism: establishing each of the tools in most communities. It outlines various design standards and planning • Detect and repair damage quickly. tools on how to achieve these standards within the • Keep facilities neat and clean. community. • Build solid facilities that will last a long time. Maintain trees and shrubs to improve line of Planning for Junkyards sight. By adopting a zoning ordinance a municipality can • Improve lighting. limit junkyard locations to specific areas of the • Monitor vandalism prone areas regularly. community. If properly drafted, such regulations may • Work to enact mandatory clean-up regulations even phase out existing junkyards in inappropriate for businesses or community. locations. • Use strengthened, scratch-resistant glass or grilles in windows. Sometimes junkyards are banned from industrial, • Develop business or neighborhood watch commercial and residential zones. When zoning is program. established for an area by ordinance, that ordinance • Use graffiti resistant paint or heavily textured usually doesn’t eliminate structures already in materials. existence. Thus, if a district is zoned residential, an existing junkyard in that district becomes a nonconforming use site. This business may remain even though it does not fit the predominant classification of real property in the zoning district. However, sometimes zoning enactments require the discontinuance of junkyards when they are nonconforming.

Preventing Vandalism Mindless destruction of public and private property can discourage revitalization efforts.

Sheridan Comprehensive Plan 43 6 SHERIDAN FUTURE LAND USE MAP

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44 Sheridan Comprehensive Plan

SHERIDAN POTENTIAL GROWTH AREAS MAP 6

Legend

Boone/Hamilton County Line

Planning Jurisdiction

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Sheridan Comprehensive Plan 45 Table 5.2 Planning Tools Tools that Require Tools that Require Tools that Require Little More Considerable Political Will & Resources Political Will & Resources Political Will & Resources

Continue to allow building to Amend the zoning ordinance to Amend the zoning ordinance be placed and oriented in any prohibit a commercial building to require development Building location on the site, as long from "turning its back" to the plan approval by the plan Orientation as no other provisions of the main thoroughfare. commission for all commercial zoning ordinance are violated buildings. (i.e., setbacks). Continue to allow parking Amend the zoning ordinance to Amend the zoning ordinance to be placed in any location limit the amount of parking that to prohibit parking in front Parking on the site, as long as no can be placed in front of the of a commercial building, so other provisions of the zoning commercial building, in effect that resulting parking is on Location ordinance are violated (i.e., pulling the building closer to the side and rear, opening up the sight distance). road. commercial building to the road. Amend the zoning Amend the zoning ordinance Amend the zoning ordinance ordinance to prohibit certain to include a section on exterior to create an architectural exterior building materials building materials that lists review committee to approve Exterior (i.e., concrete block and acceptable materials and gives exterior building material Building prefabricated steel panels) the developer guidelines for selection for each commercial Materials using them (i.e., each wall building elevation. must have at least 2 different materials, or 80% of the front elevation must be masonry). Follow existing zoning Amend the zoning ordinance to Amend the zoning ordinance ordinance commercial sign include unique sign regulations to create a sign review Signs regulations. for main thoroughfare. committee to approve each commercial sign plan and design. Rely on existing zoning Amend the zoning ordinance Amend the zoning ordinance landscape to include a section on ordinance to require the standards as only guide. landscape standards for the same landscaping for every corridor that sets minimum commercial site on the main Landscaping standards for things like buffers thoroughfare, resulting in a and lists multiple options for uniform look. the developer of each site to choose from. Rely on existing zoning Amend the zoning ordinance Amend the zoning ordinance ordinance developmental to include a section on to create an architectural Building standards (i.e., maximum architectural standards that review committee to approve Design height) as only guide. sets minimum standards and each commercial building lists multiple options for the design. developer to choose from. Rely on existing zoning Amend the zoning ordinance to Amend the zoning ordinance ordinance developmental prohibit this where visible from to require this be considered Trash standards as only guide. the road, in addition to requiring as part of development screening. plan approval by the plan & Recycling commission for all commercial buildings in the main thoroughfare.

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Environmental Nuisances In a regulatory environment, the term “nuisance” embraces anything that results in an invasion of one’s legal rights. A nuisance involves an CASE STUDY unreasonable or unlawful use of property that results in material annoyance, inconvenience, Clay County, Indiana’s ordinance discomfort or injury to another person or to the prohibiting littering and related matters defines litter as “…any public. garbage, trash, refuse, confetti, debris, rubbish, grass clippings or other lawn The unlawful use may involve doing something or garden waste (other than normal (example: piling garbage on residential property) yard or land maintenance provisions), or failing to do something (example: cutting or newspaper, magazine, glass, metal, removing noxious weeds from residential property). plastic or paper containers or other Common nuisances include the accumulation of construction material, motor vehicle part, furniture, oil, carcass of a dead junk, animals, noise, dangerous buildings, sewage and animal, or noxious, or offensive matter unsanitary conditions, and encroachments on the of any kind, or any object likely to injure public right-of-way that interfere with pedestrian any person or create traffic hazard or passage. environmental detriment.

Controlling nuisances keeps communities safe According to Clay County’s ordinance, and livable. Issues of property maintenance - the “It shall be unlawful for any person to accumulation of junk vehicles, vehicle storage, cast, place or deposit any litter upon public or private property or roadways overgrown vegetation, litter and other visual clutter other than in a litter receptacle…” - are seen as a deterioration of the quality of life. The ordinance then states that “where premises are in violation of any section of this ordinance, is hereby empowered to enter upon the premises and may thereupon correct the unclean conditions and place a lien on such land for abatement of unwholesome environmental conditions.”

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Clear language in Sheridan’s ordinance can assist New Land Uses with efforts to enforce regulations and notify the New land uses evolve all the time, and it is community of the town’s interest in promoting safe, important to make sure Sheridan’s lists of permitted clean streets and neighborhoods. uses and special exception uses are up to date in the ordinance, so that local leaders are not forced to ZONING CODE REVIEW make shaky interpretations. The compiling of the use As part of the planning process, Sheridan’s Zoning tables from each zoning district would be much and Subdivision Control Ordinances were reviewed more user friendly, and a good first step in efforts by K.K. Gerhart-Fritz, AICP, of the Planning to spot inconsistencies and missing uses. One Workshop. example would be the recommendation of a mixed- use classification for the land around the proposed The review should help create the best regional detention facility. comprehensive plan implementation tools for Sheridan, and ensure their long-term plan matches Variances/Waivers of Standards what is happening on a daily basis. The review should If Sheridan’s BZA or plan commission has a record not be considered a substitute for legal guidance of granting certain variances/waivers repeatedly, from the town’s counsel. those sections of the ordinance should be examined to see if they need to be changed to be more In general, Sheridan’s combined ordinance is an early reasonable or to better reflect local values. Sheridan and incomplete version of a unified development staff and plan commission/BZA members probably ordinance. UDO’s are a direction that many already have an idea which parts of the ordinances communities (Lebanon, Bloomington, etc.) have are sometimes ignored. taken more recently. The Indiana Code allows unified development ordinances, so Sheridan may want to consider updating this as a unified development code.

Ease of Use More could be done to make the ordinance user- friendly. Most modern ordinances are designed to be available “on-line” and include illustrations, charts, tables, etc. that make them easier to understand and interact with.

48 Sheridan Comprehensive Plan

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Best Practices - Sensible Development Requirements for bicycle parking are also One other very important reason to update becoming common in Central Indiana and help Sheridan’s ordinance is to acknowledge innovation off-set concerns about reduced automobile and best practices (i.e., Smart Growth principles). parking.

• Mixed-Use Zoning Districts: Mixed land use Bicycle parking standards would be important is one of the basic tenants of Smart Growth. if the town wanted to take full advantage of the Sheridan should look at adding a mixed-use zoning future Monon Trail Expansion. district. • Increase Density and Intensity in the • PUDs: Planned unit developments (PUDs) are Downtown: An updated downtown commercial intended to allow flexibility in design, to take zoning district would be a good way to preserve advantage of unique situation and be of high historic development patterns and scale. quality. It appears that Sheridan has very little experience with PUDs. The town should create • Modernize Street Standards: Modern street some basic minimum standards for a PUD zoning standards include smaller front setbacks. Sheridan district (e.g., minimum parcel size, required open could also introduce a maximum front setback. space, TND design standards, etc.).

• Encourage Higher Density in New Development: To get around the typical Indiana resistance to higher density, consider establishing a list of community benefits (i.e., trails) that can be traded for higher density in new residential zoning districts.

• Parking Requirements: In the interest of reducing impervious pavement and promoting more efficient use of land, several things can be done to the parking standards. Minimum parking standards can probably be reduced in many cases and Sheridan should consider adding maximum parking requirements (many commercial developments put in much more parking than is required, in order to meet a “Black Friday” level of demand).

Sheridan Comprehensive Plan 49

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Enact Standards to Foster Walkable Places: Before rezoning creates non-conforming use, In addition to small front setbacks, which bring consider whether the zoning change is premature the building closer to the front of the property, On the other hand, if the non-conforming use there are other things in the zoning ordinance that complies with the updated comprehensive plan, local can increase walkability. For example, requiring government can initiate rezoning so the use is pedestrian amenities like benches can be part conforming. of commercial and multi-family zoning districts. Also make sure uses are providing pedestrian STATE LAW CHANGES connections from the sidewalk system. Because it appears that the ordinance has not been significantly updated since it was adopted in 1999, Designate Preferred Growth Areas: This type Sheridan will need to make amendments in order of growth management should be considered as part to comply with planning-related state law changes, of rezonings (as part of state law criteria) and plat/ which went into effect on July 1, 2011. It is impor- plan approval (enabled in subdivision ordinance) and tant that the town’s attorney review and assist with should be based on a scorecard including availability the state law prompted ordinance changes. and level of services.

Use Innovative Methods to Manage Stormwater: Move to green infrastructure approaches including allowing things like rain gardens and further reducing impervious surfaces in development. Reducing the amount of stormwater has the biggest impact on managing stormwater.

Deal with Non-Conforming Uses: Indiana is one of few states where amortization of non-conforming uses is not part of enabling legislation, meaning nonconforming uses can last forever.

Sheridan should make non-conforming use standards tougher, to discourage expansion, rebuilding and change to another nonconforming use. Re-examine at the time limits for maintaining nonconforming status for abandoned/vacant uses.

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In general, the state law related changes are as Notice of Future Action: Offer a “sign-up” sheet follows: for every planning decision, so interested parties can request notice of any future lawsuits. This does Eliminate Writ of Certiorari: Indiana Code no not have to go in the ordinance; it could be in the longer uses writ of certiorari, so any reference to rules of procedure or just a change administrative it should be removed from the ordinances (see IC procedures. Seek advice from Sheridan’s attorney. 36-7-4-1608). This section of Sheridan’s ordinance should be updated with an attorney’s help. Availability of Ordinances: The development ordinance is now required to be available to the Enable Combined Hearings: State law now public, either as part of the town code or as a allows the combination of hearings for one site (i.e., separate document. It must be on file in the office a variance and a rezoning can be conducted at the of the town’s clerk and there must also be copies same hearing by the same group). Sheridan may want available for sale. See IC 36-7-4-610. to consider setting this up now, so they will have it in place for the next rush project – see IC 36-7-4-403.5. Train Citizen Planners: Schedule orientation sessions for board and commission members per Update Vested Rights: The town needs to update IC 5-14-1.5-2(c) (6). This doesn’t need to be in vested rights into the ordinance. IC 36-7-4-1015 Sheridan’s ordinance or even in their rules, but it says that if a person files a complete application, needs to be done. In the orientation, make sure the the granting of the permit or approval, and any citizen planners understand the difference between secondary, additional, or related permits or approvals conditions and written commitments, and when required are governed for at least three (3) years they should recuse themselves (no longer limited to after the person applies for the permit by the financial conflict of interest; now includes bias or lack statutes, ordinances, rules, development standards, of objectivity). and regulations in effect when the application is filed. Development per the permit does have to be completed within 10 years after the development or activity is commenced.

Sheridan’s Rules of Procedure and actual administrative practices will also likely need to be adjusted to comply with the Indiana Code amendments and may require some coordinating changes in the ordinance.

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Expand Pool of Board and Commission 2008 Citizen’s Advisory Committee Report Candidates: Note changes to the residency The 2008 Citizen’s Advisory Committee Report requirement for each citizen member and establish made some excellent suggestions, but it does a procedure for determining compliance – see IC not appear that most were enacted. Worthwhile 36-7-4-216 and IC 36-7-4-905. The new law allows committee’s suggestions (with notes from Gerhart- appointment of some nonresidents who are property Fritz) include: owners. Indiana law also allows towns to appoint alternates for plan commission members now, in • Discard R-S designation in ETJ (there is no listing addition to the BZA. of RS District in ordinance, so must have been done). Make use of Conditions and Commitments: Make sure any temporary conditions are complied • Retain and refine R-1 and R-2, while adding three with before issuing permits. Old conditions (pre- additional residential districts with moderate (3 2011) may only be enforced if the town has an official du/A) to high density (8 du/A) (ordinance still has file on them in their office – see IC 36-7-4-1015 only R-1 & R-2). (g), or if they were done as written commitments. Use written commitments with plan commission • Add 2 new Ag districts, AG-1 and AG-2 (done, and BZA cases for any long-term conditions. Use 11/10/11). conditions for short-term temporary conditions that need to be resolved before a permit can be issued • New definition for three existing commercial (i.e., approval of an updated drainage plan). districts (does not appear to have been done).

• Retain and refine I-1, while adding additional industrial district (industrial historical district is a very unusual designation, and it doesn’t appear this has been done).

• Adopt overlay zoning to protect SR 38, SR 47 and the Monon Corridor (not done).

• Adopt an airport zoning district for the southern boundary of the Sheridan Airport (not done).

• Create architectural standards and review board (not done).

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• Establish basic standards and processes for Apartments and senior living don’t typically offer PUDs (not done). garages. Modern thought is to promote less use of cars and make sure garages stay subordinate to the • Clean-up: Correct district standard primary living area. This could result in small homes inconsistencies, plan and ordinance with bigger garages (where illegal businesses often inconsistencies and bad cross-references (not start). Also, why do garages need to be attached? done). Commercial Zoning: Update the CB District • Corrections to Sec. 25-9 – cul-de-sacs. State rec to protect the downtown form and history (i.e., of 528’; Sec. 25-9 – minimum street widths to match adjacent buildings). Rewrite C1 to make it a 30’; Sec. 25-9 – Accel/Decel (Table corrections: true neighborhood commercial district, eliminating skewed, needs diagram, needs dimensions for drive-throughs and adding a maximum floor passing blister). area to ensure it remains small-scale. Residential subdivisions should not be a permitted (or special • Sec. 28.10.2 – Homeowners association clause exception) use in commercial zoning. 5,000 SF is (Amend to allow Sheridan to enforce). extremely small for any commercial development lot, even neighborhood commercial. GENERAL ZONING-RELATED COMMENTS

Agriculture Zoning: Put more limits on allowing residential uses in the A-2 District because of all the conflicts between uses, like prohibiting more than a certain number of lots be created or requiring them to sign a document that they are aware of the area being zoned A-2.

Residential Zoning: Need additional single-family and multi-family zoning districts that offer higher density. Home occupations, multi-family and senior housing (i.e., assisted living) should all be allowed by right in some district, not as a special exception. Two-car attached garages should not be a minimum requirement.

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General Commercial should be defined better. Child Care Homes: The state prohibits any Should also have a heavy commercial district, with regulations for child care homes that differ from heavier, more intense uses (i.e., body shops, machine other regulation for homes in the same area. In shops, etc.) that do not include retail or restaurant. other words, no special exception. Generally missing lots of commercial uses (i.e., personal services like salons, etc.). Signs: Update to include digital signs, human signs, etc. 600 SF of signage is too much for most Industrial Zoning: Most Light Industrial Districts commercial and industrial uses. Consider a total prohibit any outside storage or severely restrict the maximum of 200 SF, which is still very generous. amount and location, instead of Pole signs are not appropriate for limiting it as a special exception. all commercial districts (i.e., the It may not be in compliance downtown). Encourage more use of with state law to adjust monument signs by allowing a square development standards with a footage bonus over the pole sign. special exception (as practiced in historical industrial). Flood Regulations: Work directly Per Indiana Code, that is a with the Indiana Department of developmental standards Natural Resource’s Division of variance. Consider adopting Water to review their existing flood a heavy industrial district for district regulations. The state has a some of the less desirable uses model ordinance they want local (i.e., slaughterhouse, etc.). governments to follow.

Institutional Zoning: Parking Standards: Consider Consider adding an institutional reducing the minimum number of zoning district for schools, churches, etc. spaces (particularly the retail ones requiring 1 space/200 SF) and set maximums in order to limit Performance Standards: Do not rely too much the amount of impervious surface. Add bicycle on these standards. Most have to be measured with parking requirements. Cross-check the list of very complicated equipment that most communities parking uses with the general use charts – it is do not have access to. Instead concentrate on use apparent that the use charts are lacking. and form regulation.

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Landscape Regulations: Landscape requirements They must be enabled in the ordinance before using. need major amendments for parking lot landscaping, Note that written commitments must be recorded street trees, buffers and screening. Be more specific with the county recorder and a permanent file on and show illustrations about number, size and type compliance must be kept – see IC 36-7-4-1015 (b). of required plants. Development Plan: Why is formal development Impervious Surface Coverage: More important plan approval necessary where the town already has than the amount of lot covered by buildings (lot the BZA reviewing and approving special exceptions, coverage), impervious surface coverage limits the even if approval is by staff? Under Indiana Law, plan amount of pavement, thus limiting run-off and commission has final approval of development plans, drainage issues. Set maximum impervious surface not the town council. area for all zoning districts. Development Standards Variances: Consider Front Setbacks: Consider adding an “average” adding an additional criterion: the variance setback provision for infill and redevelopment areas requested is the minimum necessary and is not to better accommodate infill and redevelopment. caused by actions of the owner, past or present. Also look at maximum setbacks. Special Exception Criteria: Consider developing Written Commitments: These are essentially detailed and unique criteria for different special permanent conditions that go with the land, exceptions, similar to what was done with wireless regardless of ownership. Written commitments are a facilities. great tool that can be used for rezonings, variances, development plans and plats. Violations: Consider changing to a less cumbersome and more effective ticketing system.

Fees: Take the fee schedule out of the ordinance. It is easier to update if it is in the rules of procedure for plan commission, instead.

Requirements for Submission: Take out of the ordinance for plats, development plans, etc. It is easier to update if it is in the rules of procedure for the plan commission, instead.

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PUDs: Consider setting some minimum standards Notice to Interested Parties: Few communities (i.e. percent open space, percent/mix of use, etc.) allow “in-person” notification. Mailed notice can be done by certificate of mailing (cheaper and more ac- County Commissioners’ Certificate: Note that cessible than certified mail). the county commissioners are accepting right-of- way dedication, not approving the plat. Only the plan Plat Drawing Requirements: Require a location commission can approve a plat under Indiana law. map on face of plat.

Residential Subdivision Standards: The included Town Standards: Include standard town certifi- residential standards for open space, etc. are good! cates and details in an appendix to the ordinance (not as part of the ordinance). SUBDIVISION REGULATIONS Technical Review: Establish a technical review Types of Plats: Introduce a minor and a major committee, consisting of town’s engineer, planner, type of plat, with different standards and processes. utility representative, fire representative, schools Minor subdivisions have no new streets or water/ representative, health department, etc., to review sewer extensions and are limited to very few lots subdivision proposals and pass comments and rec- maximum, so it is a simpler process. ommendations to the plan commission.

Secondary Plat: Approval of secondary plat may Waivers, not Variances: IC 36-7-4-702 now be delegated to a committee or staff by plan com- officially recognizes that the plan commission has mission. It is not a good idea to allow filing of sec- the authority to grant waivers from the subdivision ondary plat at the same time as primary. It makes standards of the ordinance. The town needs to list applicant more resistant to cooperating with the its criteria for waivers (which are not the same as a town and making necessary variance). changes. Traffic Calming: Optional Pre-Filing Meet- Most ordinances have ing: Make the optional pre-filing sections on this as part meeting mandatory. This is com- of their design stan- mon practice in other Indiana dards. communities.

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Alleys: Traditional neighborhood development in- corporates alleys, so they should be allowed in new residential areas that have smaller front setbacks and narrower streets.

Frontage Places: Has Sheridan had any success in using frontage roads? What about also requiring connecting access easements for commercial areas?

Sidewalks: Sidewalks should be required on both sides of street everywhere, not just in residential areas.

MOVING FROM COMPREHENSIVE PLAN TO ZONING ORDINANCES The comprehensive plan is only the first step in updating Sheridan’s planning. The most common tools used to ensure that the community goals outlined in this plan are reached include:

• Updating the zoning code. • Updating the subdivision code. • Creating a Capital Improvement Plan.

If these actions are not taken, it is difficult to imagine how the community can move toward its goals.

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KEY POINTS • Sheridan is tucked away in a corner of the fastest-growing county in Indiana. That growth is projected to continue for decades, meaning the town should prepare now to either take advantage of it or shield itself.

• The town has many assets in place – the county’s only historic downtown, a shovel-ready industrial site – that has not yet “paid off.” But the maintenance and promotion of those assets are Sheridan’s best chances at diversifying its economy.

EXISTING CONDITIONS fast-paced growth. In the years to come that growth Devising an economic development strategy that — for better or worse— is likely to reach Sheridan builds on a community’s strengths while also and the town should plan accordingly. addressing its weaknesses is an essential part of the comprehensive planning process. Against this backdrop we examine the economic conditions in Sheridan, with an eye toward likely This chapter lays the groundwork for such a strategy future developments. To preview, some of the key by giving an overview of Sheridan’s economic challenges and opportunities discussed in this chapter development potential, identifying key opportunities include: and challenges and articulating concrete steps the community can take to capitalize on its assets and • The industrial park has yet to draw significant mitigate its liabilities. development; Certainly, 60 of the 96 acres remain vacant. First, a bit of context. Data from the Indiana Business Research Center (IBRC) indicate that since 2010, • There is a marked lack of diversity in the tax base, Hamilton County has been the fastest growing with 80 percent of gross assessed property values county in the state and that it will continue to be the consisting of residential properties, rather than fastest growing county until at least 2050, when the industrial, commercial or agricultural properties. population will be double what it is today. • Educational attainment levels, though improving, For now, Sheridan remains a community of a few are low compared to state and national averages. thousand people while neighboring cities experienced

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• Real household incomes are trending upward On the other hand, some would argue that a and there is comparatively low poverty. stagnating local economy is a by-product of a declining population. • Home values have increased by about a third over the past two decades, even when Changes in educational attainment indicate a accounting for the collapse of the housing workforce with an increasing number of individuals bubble in the mid-2000s. who have received post-secondary training or education. Effective educational and workforce • The town has managed to sustain steady development opportunities should address the population growth and is in the fastest-growing needs of both region in the state. employers and job seekers, • Close proximity to several important whether they are transportation corridors could provide location just entering the advantages for industries. workforce or are incumbent ECONOMIC INDICATORS workers looking Several key economic and demographic variables for better tend to be correlated with strong development opportunities. potential. These variables include (but are not limited to): Changes in wealth should • Population growth be characterized • High levels of educational attainment by an increasingly • Growth in household wealth & income prosperous • Employment / workforce composition middle class and a declining poverty rate. A successful local economy Communities with a dynamic economy and high provides training and education on the one hand, quality of life are keeping existing residents and and adequate job opportunities on the other. The attracting new ones; they have a growing population. rising standard of living in low-income households People move to where the opportunities are for should lower the poverty rate and enlarge the jobs, education, cultural enrichment, recreation and a middle class. safe and healthy life.

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Successful local economies will also be characterized Age: The median age in Sheridan of 34.7 years is by changes in key employment sectors that about two years younger than the median age in continue to position their communities to thrive Indiana, according the Census Bureau’s 2007-2011 in the global and national marketplace. This is American Community Survey (ACS). This implies especially true at the present time, as the country a younger, healthier workforce for several years to continues its evolution from an economy which was come, though future median age projections from manufacturing-based to one which is knowledge- the IBRC indicate that Hamilton County is expected based, technology-driven and service-oriented. to surpass the statewide median age in the next few decades and to have a median age that exceeds the The following gives an overview of how Sheridan statewide median by more than two years by 2050. fares on each of these variables, along with a few others. The general picture that emerges is a Education: The percentage of Sheridan residents positive one, with sustained growth in several key with at least a high school degree increased from 67 economic development measures over the past few percent in 1990 to 82 percent in 2007-2011, a 15 decades, although there are a few caveats. percent improvement. The percentage of residents with a bachelor’s degree or higher increased during Population: Though Sheridan’s growth has been that same period from 5 percent in 1990 to more somewhat inconsistent over the past 50 years— than 11 percent in 2007-2011. growing significantly in some decades, contracting slightly in others—the overall trend has been Despite these improvements, Sheridan trails the upward. The 1980s, for instance, saw a population state by a wide margin. Nearly 87 percent of Indiana decline of about 7 percent, followed by a decade of residents are high 23 percent growth in the 1990s. Between 2000 and school graduates, 5 2010, Sheridan’s growth slowed to about 6 percent, percent more than but the town grew nonetheless from 2,520 to 2,665. the proportion of Sheridan residents, The latest available figures from the IBRC indicate and nearly 23 that between 2010 and 2011, Sheridan grew by percent of Indiana more than 2 percent, reaching 2,744 and making residents have at it the 46th fastest growing town or city in Indiana least a bachelor’s (out of more than 600 total). If Sheridan were to degree, 12 percent continue growing at this pace, the 2010 to 2020 more than in decade would very closely resemble the 1990s in Sheridan. population growth.

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Higher education levels indicate that the workforce annual salaries of just over $30,000. Manufacturing is more productive, likely to command higher wages, jobs, on the other hand, pay nearly $70,000 per and more attractive to desirable industries in skilled year, and health and social services jobs pay more fields. While Sheridan has seen improvements in this than $50,000. The next largest industries include regard, it still has some catching up to do before it construction, arts, entertainment and recreation and can close the gap with statewide averages. “other” services. These three industry categories collectively account for about a quarter of Sheridan Income: Once adjusted for inflation, the statewide workers. median household income has actually declined by about 7 percent over the past two decades, THE SHERIDAN ECONOMY from $53,465 in 1990 to $49,529 in 2011 (in 2012 Sheridan Employers dollars); Sheridan’s median income, on the other Most residents work outside of Sheridan. For hand, has grown by 20 percent to $52,117. This example, Hamilton County has five of Indiana’s represents a real (inflation-adjusted) increase of largest companies, including CNO Financial Group about $9,000 and means that Sheridan’s household Inc., ITT Educational Services Inc. and Duke Realty income has surpassed that of the state. Corp.

Another positive indicator: Sheridan’s poverty Because Sheridan is not the county seat, it doesn’t rate, which currently stands at 9.3 percent, has have a large collection of real estate, banks and improved relative to the statewide poverty rate financial-service jobs. Some of the bigger employers since 1990, and Sheridan’s current poverty rate is in town include Sheridan Community Schools, JBS nearly 5 percentage points lower than the current United and EMC Precision. statewide rate of 14.1 percent. Incidentally, the national poverty rate is higher than both Indiana and Sheridan’s, at 15.9 percent.

Employment: As with the rest of Indiana, the major industries in Sheridan are manufacturing, educational services, healthcare and social assistance and retail trade. Close to 20 percent of all employees in Sheridan work in education, health and social assistance, while 15 percent work in retail and about 13 percent work in manufacturing.

Unfortunately, retail jobs are among the lower- paid positions in Hamilton County, with average

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ECONOMIC DEVELOPMENT 7 Industrial Land be given, however, to make sure new commercial The Sheridan Industrial Park is northeast of the growth on the busier corridors doesn’t further West Road/SR 47 intersection. Annexed in 1997 for drain vitality from downtown. the purpose of light industrial development, the park was the central focus of Sheridan’s 1998 economic Tax Increment Finance Districts development plan. Tax Increment Financing (TIF) districts can be a powerful tool for development, as it allows local Although the town has already implemented the governments to direct funding to specified projects steps prescribed in the plan (for example, extending and areas. At the same time, TIF does not count utilities to the site, exploring TIF options), little against local debt limits. industrial development has resulted up to now - 60 acres of it remain undeveloped. Looking ahead, TIFs can be particularly important in towns which though, the town’s recent efforts at getting the site do not have many options for raising funds. Sheridan registered as shovel-ready—the only such site in has several TIF districts: Hamilton County—could signal a new turn for the industrial park. • Sheridan Industrial Park • SR 47/Mule Barn Road For the future, the community identified land • Webster along SR 47 as having the potential for industrial development, particularly toward the western edge Town leaders have discussed creating a new TIF of town. district to encompass downtown, but are concerned about its implication on the greater tax base. Commercial Land However, if the town acts now to TIF the central Most commercial properties are downtown or at business district, they will be in position to capture the Sheridan Mall. money from future projects – such as the proposed Hamilton County Event Center - and direct that Downtown shops include Keevers Hardware and funding into downtown projects. Railer’s IGA Foodliner – two key, foundational stores for any downtown. There are empty storefronts and some underutilized buildings. Stores at the mall include Stuart’s Steak House, Sheridan Eye Center and Los Cotorros Mexican Restaurant.

Looking ahead, the community envisions revitalizing downtown shops and allowing more retail along SR 47, across from the Sheridan Mall. Care must

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Economic Development Partners The primary economic development organization TIF DISTRICT representing Sheridan is the Hamilton County CASE STUDY Alliance. This organization is pivotal in developing The Town of Converse, Ind., has about and promoting the town’s industrial sites, along with 1,200 residents. In 2000, it invested about Duke Energy, so Sheridan leaders should keep in $25,000 in legal and financial advice to constant communication with these organizations. set up a downtown tax increment finance (TIF) district. The alliance is particularly important to Sheridan’s efforts at workforce development, because diversified and well-trained workers are vital The district now has $600,000 for invest- to attracting new businesses. The town could ment in their downtown, which is about partner with the alliance, for example, on training four blocks long. They have fixed drain- certification for incumbent workers or a school-to- age problems for the downtown’s biggest careers program for students. company, and put period streetlights and fancy sidewalks down Jefferson Street. In town, Sheridan Main Street and Sheridan Chamber of Commerce help promote local businesses and a healthy downtown. Steve Reiff, the town’s economic development director, said, “We are such a small The Sheridan Chamber of Commerce runs a town, that I don’t know how we would website, offers local business classes and generally have been able to pay for any of this with- promotes business activity. out a TIF district.” Sheridan Main Street, active since 2005, has completed pocket parks and streetscaping projects and has worked with Ball State University on façade improvements. The group has plans for other downtown projects.

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MAIN STREET The Sheridan Main Street group has a wide range of completed, ongoing and planned projects, including:

• A small town square across from the IGA, including a pergola.

• Another round of facade grants, where they match up to $5,000 for improvements to local storefronts.

• Creating a similar matching program for cloth awnings on downtown stores.

• A new pocket park next to Wallace Grain, with a Monon Trail theme.

• Wayfinding and heritage signs on Main Street.

• Stamped brick crosswalks at key intersections.

• Restoring a wall and painting a new mural at a building at 5th and Main.

• Putting a billboard on SR 31 promoting Sheridan.

• Inventorying downtown space for sale and listing it on a state website.

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CHALLENGES AND OPPORTUNITIES GOALS AND OBJECTIVES Economic development was the most discussed This section repeats economic development-related topic during this planning process. About 20 projects from the Sheridan Opportunities List and people came to a focus group to discuss the town’s then elaborates on those goals or adds items. Op- potential. Some highlights of that discussion include: portunity items that are not detailed in this chapter will be covered in another. For example, the • Drainage problems are the most immediate fix drainage goal is explained in the Infrastructure impediment to growth in the town. Hamilton Chapter. County is studying the possibility of creating a regional retention pond that would be a 7 to 10- acre body of water. • Fix drainage problems first • Explore economic • The town’s infrastructure capacity is adequate. MUST development opportunities Sewage plant capacity is sufficient but has DO’S along west border of problems when storm water gets into the Industrial Road. system. • Explore opportunities for • Attracting businesses to town should be the top Ashland brownfield. priority, and the town must develop partnerships • Promote industrial park in to assist with the effort. CAN cooperation with the state DO’S and Duke Energy. • Developer Rocky Shanehsaz plans to convert • Investigate small business/ the old Adams Township Consolidated Grade Main Street business & High School site into the Hamilton County development incentives. Event Center. He is working on demolition, • Create an historic district/ engineering and site plans with a start-up in late Main Street revitalization 2014 or early 2015. SHOULD plan. • Launch a Sheridan promo- • Improvements to downtown and town DO’S tional campaign. gateways would complement all the proposed development projects.

• Sheridan does not have the executive housing stock that other communities offer, despite a large population of professionals working in the county.

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Economic Development Goal 1: Ensure there is adequate industrial land ready for future development.

Strategies

• Filling the vacant land at Sheridan Industrial Park with quality tenants is the first priority. The Indiana Economic Development Corp., Indiana Office of Community and Rural Affairs and Duke Energy are vital allies, and frequent contact with them is crucial.

• The second priority is exploring economic development opportunities along the west border of Industrial Road. This land should be preserved now because growth patterns and improvements to SR 31 will make it desirable for industrial uses in the future.

• The Ashland brownfield site should also be explored for potential uses. If results from the environmental assessment of this 50-acre site are encouraging, take the next steps toward preserving it for development (proper zoning, etc.).

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Economic Development Goal 2: Diversify the tax base so that homeowners account for less than 80 percent of gross assessed property values.

Strategies

• This is a goal every homeowner can support. Use the public’s shared interest to explain why public investment is needed to promote industrial and commercial growth.

Economic Development Goal 3: Create a downtown tax increment finance district to raise resources for development.

Strategies

• Until outside investors “discover” Sheridan, the town will have to lead the way in revitalization. Sheridan Main Street has projects lined up, but needs funding. Creating a TIF district can help provide those resources. (See Project Box: TIF Districts).

• A TIF district should be in place before any major new investments are made downtown.

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Economic Development Goal 4: Explore public- private partnerships for downtown projects.

Strategies

• Encourage plans to convert the old Adams Township Consolidated Grade & High School site into the Hamilton County Event Center. Work with the developer on incentives or other forms of cooperation.

• Seek ways to capitalize on the project to promote downtown. For example, sidewalks or a walking path could be created from the old school site to Main Street.

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KEY POINTS

• Sheridan’s overall housing stock has increased by nearly 16 percent over the past decade. This rate is almost 7 percent higher than the state growth rate.

• While Indiana has seen a small decline in home values since 2000, Sheridan has seen a significant increase in median home values of almost 13 percent.

EXISTING CONDITIONS Residential Land Use This chapter begins with a brief collection of data depicting the existing housing conditions in Sheridan. After examining the principal challenges and opportunities posed by the current Sheridan market, there is a set of recommendations for meeting these challenges and taking advantage of identified opportunities.

Table 8.1 Sheridan Housing Data (2011) Characteristic Sheridan, % of % change, Indiana, % of % change 2011 Total 2000-2011 2011 Total 2000-2011 Current Population 2,662 - 5.6% 6,454,254 - 5.8% Projected Population, - - - 6,852,121 - - 2020 Total Housing Units 1,141 - 15.5% 2,788,797 - 9.2% Occupied Housing 1,044 91.5% 12.3% 2,472,870 88.7% 5.5% Owner-Occupied 774 74.1% 18.7% 1,758,192 71.1% 5.1% Renter-Occupied 270 25.9% -2.9% 714,678 28.9% 6.7% Vacant Housing Units 97 8.5% 67.2% 315,927 11.3% -3.3% Median Home Value $100,200 - 12.6% $123,300 - -3.3% Median Year Built 1969 - - 1972 - -

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INVENTORY AND ASSESSMENT: SINGLE- FAMILY HOUSING • The median year homes were built in Sheridan Most of the housing units in Sheridan are classified was 1969, which is roughly equal to the as single-family. The most recent data available for statewide median of 1972. Sheridan is from the U.S. Census Bureau’s 2007- 2011 American Community Survey (ACS). The ACS Building Permits reveals the following trends: Building permits are generally a good indicator of the strength of a housing market and can be a useful • Between 2000 and 2011, Sheridan’s total housing benchmark for economic growth. stock increased by more than 15 percent, growing at a slightly higher rate than the state The number of residential building permits issued overall, at about 9 percent. in Sheridan has fluctuated over the past decade (shown in Figure 8.1 on the following page). In the • At the same time, Sheridan’s population increase years from 2001 to 2004, the number of permits of almost 6 percent was in line with the overall issued remained steady between 11 and 16. The state average. town then experienced a significant spike from 2005 to 2007, resulting in 73 new building permits. Since • Owner-occupied units in 2011 made up about that time the trend has recently remained steady 74 percent of the total occupied housing stock. between 15 to 25 new issues each year. Since 2000, Sheridan has seen a much more rapid growth in owner-occupied units, growing Inventory and Assessment: Apartments and at over three times the average rate in Indiana. Rental Units About 23 percent of Sheridan’s population lives in • Over the past decade, inflation-adjusted home rental units, as of the 2007-2011 ACS. In comparison, values have been on the rise in Sheridan. The about 26 percent of Indiana residents are renters. median home value of $100,200 in 2011 is nearly 13 percent higher than its 2000 value. Meanwhile, the state as a whole has seen median home values decline by 3 percent.

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Affordable Housing Research The National Low Income Housing Coalition once again, is the wage a household must make per (NLIHC) conducts research on affordable housing hour during a 40-hour work week to afford a two- and produces an annual report that estimates the bedroom unit at fair market rent, which is $698 per cost of affordable housing by county throughout the month in Indiana. United States. The housing wage in Hamilton County is $14.37, Two useful statistics that the NLIHC’s report slightly higher than that of Indiana and nearly twice tracks are the fair market rent and the housing as high as the minimum wage ($7.25 per hour). wage. Briefly, the fair market rent is defined as the Table 8.2 shows the housing wages of selected 40th percentile of gross rents for “typical, non- areas in Indiana. substandard” rental units in a given area. The housing wage is defined as the hourly wage a household Table 8.2 Housing Wage for a must earn to afford an apartment at fair market Two-Bedroom (2012) rent while spending no more than 30 percent of its Indiana $13.43 income on housing. Hamilton County $14.37 Indianapolis Metro $14.37 Put another way, fair market rent gives a sense of Bloomington $13.92 how much a decent, affordable rental unit costs in a Lafayette $13.98 given area, while the housing wage tells how much a Kokomo $12.48 household must earn to afford such a unit. Terre Haute $11.85 Evansville $12.85

Figure 8.1 Sheridan Residential Building Southbend $13.75 Permits by Year Source: National Low Income Housing Coalition 80 73 70 60 Fair Market Rent 50 49 40 40 In Hamilton County, the median household income

30 14 16 20 24 of $66,900 per year (in 2012 dollars) allows for a 20 16 18 11 15 10 12 maximum monthly housing cost of up to $1,673,

0 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 according to the NLIHC standards mentioned above. However, an extremely low-income Source: U.S. Census Bureau household income, which is defined as a household Housing Wage: Rental Units earning 30 percent of the median income for a The housing wage in Indiana for a two-bedroom unit given county and at $20,070 for Hamilton County was $13.43 per hour in 2012. This amount, in particular, can afford only $502 per month for housing.

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Put another way, the fair market rent in Hamilton CURRENT MARKET SNAPSHOT County is $747 per household per month for a two- To get a better sense of the current housing mar- bedroom unit. A single minimum wage earner, who ket, we examined data from the Multiple Listing in Indiana can only afford a rent of $377 per month, Service (MLS) real estate listings for Sheridan in would need to work 79.26 hours per week to be May 2013. Tables 8.3 and 8.4 present these findings. able to afford a two-bedroom unit in Hamilton The tables include only properties listed in the MLS County. A household consisting of two minimum system for Sheridan and do not include properties wage earners would just barely be able to afford a listed by brokers who do not utilize the MLS. two-bedroom unit while each was working a 40- hour week.

Table 8.3 Properties for Sale (May 2013) Apartments/ Single- Manufactured/ Lots/Land Condo/ Farm/Ranch Total Multiple Family Mobile Home Residential Townhome/ Family Home Home Row Home/ CO-OP 5 52 3 28 2 8 98 Source: Realtor.com, 15 May, 2013

Table 8.4 gives the breakdown of listings in Table 8.3 by price range. The majority of available units were listed at the higher end of the price range. In fact, the largest number of properties was listed at the highest pricing range option (greater than $200,000).

Table 8.4 Properties for Sale by Price (May 2013) <$25k $25k- $75k- $100k- $150k- >$200k Total $75k $100k $150k $200k Apartments/Multi- 0 1 1 2 1 0 5 ple-Family Home Single-Family Home 1 12 7 17 6 9 52 Manufactured/ 0 2 0 1 0 0 3 Mobile Home Lots/Land 3 2 3 2 3 15 28 Condo/Townhome/ 0 0 0 2 0 0 4 Row Home/CO-OP Farm/Ranch 0 0 0 0 2 6 8 Total 4 17 11 24 12 30 98 Source: Realtor.com, 15 May, 2013

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HOUSING 8 HOUSING TRENDS According to the Indiana Housing and Community Housing Alternatives Development Authority website, “A project-based Having flexible housing options for low-income resi- Section 8 development provides rental assistance to dents is an important element in any comprehensive make affordable rental units for low-income people. housing strategy. When you get help through a project-based According to the 2007-2011 ACS, close to half section 8, you have to live in that particular housing of all Sheridan renters, at 47 percent, pay a gross development.” rent that is more than 30 percent of their monthly incomes, which is the commonly accepted threshold Aside from Section 8 developments, another afford- for housing affordability. This suggests that there is able housing option in Sheridan is the Spicewood a significant portion of renters in Sheridan (and in Garden Apartments, which are funded by Low- Indiana) who cannot reasonably afford their housing Income Housing Tax Credits. The property reserves costs. 23 units for low income residents.

This figure is approximately in line with the numbers As shown in Table 8.5, Sheridan’s Section 8 develop- statewide and underscores the need to ensure that ment is made up of 10 units in Sheridan Community there is an adequate supply of housing for very low- Apartments. income and elderly residents. Table 8.5 Sheridan Affordable Housing Subsidized Housing Development Address City Description Alternative housing is available for low-income, dis- Sheridan 403 S. Sheri- 10 one-bed- Community California dan room units abled and elderly Sheridan residents primarily in the Apartments St. form of Section 8 housing developments. Spicewood 901 Basil Sheri- 23 two-bed- Garden Lane dan room units Apartments Sources: State.in.us and Hamilton County Area Neighborhood Devel- opment

Local Housing Organizations Sheridan is being served by Hamilton County Area Neighborhood Development (HAND). HAND is a local non-profit organization that aids in promoting neighborhood revitalization and housing preservation, particularly for low- and moderate-income residents.

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8 HOUSING

PARTNERING WITH HAND The following items are in HAND’s Strategic Plan update: Homeowner Repair Program HAND is in the process of developing a repair program which will benefit homeowners with an income at or below 80 percent area median income throughout Hamilton County.

HAND’s intent is to work with each community to determine potential clients or neighborhoods of focus, identify funding sources and engage volunteers as part of the revitalization effort. HAND hopes to begin its repair program in 2014 with Sheridan as one of the key communities in which to start. Downtown Revitalization HAND has been part of discussions regarding the opportunities for revitalization in downtown Sheridan. HAND hopes to identify opportunities to rehabilitate structures downtown in order to incorporate additional affordable housing as well as support the existing local businesses. HAND will be considerate and responsive to the needs of the community and work to support and achieve the goals of the comprehensive plan. New Construction of Affordable Rental Housing HAND has established a presence in Sheridan with the construction of Spicewood Garden Apartments beginning in 2009. HAND recognizes the continued need for additional affordable rental housing for both seniors and families in the area. HAND is working to identify additional opportunities to build new quality affordable housing, which can be accomplished through the expansion of Spicewood, as well as other areas within the community.

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GOALS AND OBJECTIVES This section repeats housing-related projects from the Sheridan Opportunities List and then elaborates on those goals or adds items. Opportunity items that are not detailed in this chapter will be covered in another.

MUST • N/A DO’S • Public safety and code enforcement. • Explore ticketing procedures. CAN • It will take money/ DO’S manpower/political will. • Expand senior housing development.

SHOULD • N/A DO’S

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Housing Goal 1: Increase involvement with HAND, encouraging and aiding them in their projects for Sheridan.

Strategies

• Put simply, HAND has the resources and expertise that Sheridan needs to move forward on its housing issues. Their stated projects for the town – homeowner repair, downtown revitalization and construction of new affordable rental housing - are an exact match for the priorities identified in this planning process. Until the town builds capacity to fund its own projects, HAND will be a vital partner.

• Be the wheel that squeaks. Using this comprehensive plan as a guiding document, meet quarterly with HAND representatives to help drive the projects forward.

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Housing Goal 2: Recognize that consistent and even- handed enforcement of regulations is critical to maintaining healthy neighborhoods.

Strategies

• It’s distasteful, expensive and politically dangerous, but enforcing ordinances against unkempt or dangerously deteriorating properties is key to revitalization. Problems with distressed properties include trash, high grass and security issues; occupied or partially occupied buildings with serious violations such as no heat or broken water pipes and no common area electricity (leading to non- functioning fire alarms).

• Enforcing existing regulations is tough enough, but the town might be able to make the job easier – or at least clearer – by adopting new ordinances, as recommended in the Land Use Chapter. Defining the rules better will make enforcement easier to understand and apply.

• Ticketing procedures, explained in the Land Use Chapter, can help reduce the court expenses that are associated with code enforcement.

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Housing Goal 3: Create incentives to encourage neighborhood investment and growth.

Strategies

• Encouragement and disincentives are needed for neighborhood revitalization. Just using disincentives – code enforcement – can bring complaints of heavy handed tactics. But if the town shows its willingness to invest in core neighborhoods, it’s in a much stronger position to demand the same from others.

• There are some relatively low-cost programs the town can offer, including:

• Small and Simple Grants provide neighborhoods with the opportunity to initiate projects that require $1,000 or less. Examples include neighborhood signs, gatherings and brochures.

• Neighborhood Improvement Grants to pay for physical projects that require $2,000 or more. These include limestone monuments, flower boxes and playground equipment.

• Neighborhood Cleanup Grants include a city staff/ resident partnership. The neighborhood organizes the event and provides all the volunteers; the city provides the dumpsters, Hazmat removal, chipper service, tire disposal and safety vests.

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Housing Goal 4: Select a small, core neighborhood close to downtown as a pilot project for revitalization.

Strategies

• The first step here is to make the case for why revitalization makes economic sense. Communities have found that if they reinvest in their traditional neighborhoods first, they will reduce the cost of infrastructure and services, spur private reinvestment in the neighborhoods, reduce crime and ultimately increase the tax base in a sustainable manner.

• The next step is getting in place the incentives and disincentives listed above, so that the town has tools to work with when undertaking neighborhood revitalization.

• After preparing the groundwork, the town should work with HAND on the project, because it would tie directly to their stated goals for Sheridan – projects in homeowner repair, downtown revitalization and construction of new affordable rental housing.

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KEY POINTS • Soil conditions and flat topography mean that Sheridan has difficulty draining water from rain. This necessitates additional measures to ensure proper drainage for new development.

• Sheridan has a rich agricultural heritage. Measures must be taken to ensure future prosperity does not endanger highly productive and culturally significant farmland within Sheridan’s planning jurisdiction.

EXISTING CONDITIONS Topography & Geology west. However, Sheridan is essentially split in the The land surrounding Sheridan is very similar to middle from the northwest corner to the southeast most of Hamilton County; flat. There is some relief corner by two distinct watersheds supplying the fol- along streams and other major drainage ways but lowing two water bodies: the predominant topographical features are generally very low relief. • Symons Ditch, a tributary of the Little Cicero Creek (northeast) Sheridan is within the Tipton Till Plain of the Central • Eagle Creek (southwest) Till Plain Region, as defined by Henry Gray in his book Physiographic Divisions of Indiana (Gray, 2000). It is important to note that the headwaters of the This region is predominantly underlain by glacial Little Cicero Creek actually begin near the north- till deposited during the Wisconsin Glacial Period eastern corner of Sheridan, with the lower end of between 10,000 and 22,000 years ago. the creek draining into the northwest side of Morse Reservoir. The town is also uniquely situated at the Major Streams and Rivers headwaters to the Eagle Creek – Long Branch/Irish- The Natural Resources Map on the following page, man Run. The location of the town in relationship to shows the major natural features for Sheridan. Since these two watersheds is important because both of proper drainage is critical for any intended land use, these creeks supply a majority of the water entering hydrology is one of the most important natural fea- both Morse Reservoir and Eagle Creek Reservoir, tures to understand for the town. Sheridan is within which collectively help supply more than 250,000 the Upper White River Watershed, part of the West residents with their daily water. Fork of the White River Watershed. The major flow of surface water in this region is northeast to south

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This means that runoff from the town has the A significant number of additional wetlands were potential to impact water quality on a far larger observed in surrounding Adams Township. As scale than many other Indiana communities. In fact, Sheridan considers future development it must Little Cicero Creek was identified as one of four make efforts to preserve and protect these nearby high priority watersheds for reducing water quality wetlands. impairments in the 2011 Morse Reservoir/Cicero Creek Watershed Management Plan. Groundwater/Aquifers According to IDNR, aquifers produce approximately There are also countless tributaries and drainage 25 percent of all water within Hamilton County. areas providing water to the major streams and Sheridan sits atop the following productive aquifer rivers near Sheridan. system which is also present throughout most of Hamilton County: the Silurian and Devonian Wetlands Carbonates Aquifer System. The Natural Resources Map also shows a number of wetlands in and around Sheridan. This system is generally capable of meeting average Wetlands provide valuable ecosystem services in small-scale domestic water usage and has a a number of ways. Wetlands operate as a natural maximum depth range in Hamilton County of 450 buffer for stormwater runoff, slowing the flow of feet. The typical well depths over this aquifer most water and filtering contaminants. Wetlands also commonly range from 80-240 feet deep. These wells provide valuable natural habitat to a wide variety of can usually meet the daily water needs of domestic plant and animal species. users and many high capacity, or industrial users as well. The well yields typically range from 10-30 Wetlands, once considered an obstacle to gallons per minute and can reach as high as 700 development and progress, are now viewed as a gallons per minute for reported high-capacity wells, valuable natural resource to be protected. The according to IDNR. topography and soils around Sheridan mean that a large number of these important natural features exist within close proximity to the town.

A recent review of the U.S. Fish and Wildlife Service’s National Wetlands Inventory online map (www.fws.gov/wetlands/Wetlands-Mapper.html ) showed approximately 16 classified wetlands located within, or adjacent to, Sheridan’s planning jurisdiction.

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Floodplains and Flooding Flooding in Sheridan is mostly a function of The nature of the soils also means that lands in and underlying soils and flat topography. Poorly drained around Sheridan can be well suited for agricultural soils do not allow stormwater runoff to infiltrate purposes if properly drained. There are a number into the ground, increasing overland concentrations of areas immediately adjacent to Sheridan which of stormwater during heavy rain. The flat topography are currently classified as prime farmland by the surrounding Sheridan increases the time it takes U.S. Department of Agriculture. These areas include rain water to reach drainage areas and creeks. This portions of land to the northwest and northeast of combination makes localized flooding and standing the town. water a likely occurrence in and around Sheridan. The Farmland Classification Map on page 88 The two major watersheds draining Sheridan have shows the distribution of farmland characteristics in narrow floodways along the main creek corridors, and around Sheridan. The map clearly shows a large but there are no significant flood-prone areas concentration of land currently classified as prime associated with these water bodies. As the town farmland northwest, northeast and east of Sheridan. considers future development, it is important that provisions be made to improve the surface drainage of new development sites to reduce the likelihood of localized flood events and standing water.

More detailed information relating to the handling of stormwater runoff can be found in the Utilities Chapter of this plan.

Soils Soils around Sheridan are predominantly Crosby, Brookston and Patton series soils. While each of these soil classifications has unique properties, they are generally characterized as deep and moderately- poor to poorly drained with slow permeability.

The poor drainage of soils in and near Sheridan means that sites for future development must be carefully selected and designed to allow for appropriate site drainage.

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NATURAL RESOURCES & RECREATION 9 Parks and Recreation and Natural Areas The town has a number of popular outdoor events Hamilton County also has a number of county centered around its local park system. Many of these operated parks and natural areas open to the public. events, such as Bluegrass Fever, The Harvest Moon Festival and the farmers’ market, enjoy regional and While there are currently no Hamilton County national attendance by large crowds. There are three parks within Adams Township, there are a number parks within Sheridan, listed below, which are also of county facilities within a reasonable distance to shown on the Natural Resources Map located on Sheridan including: page 89: • Stoops Heron Rookery, a 33-acre park • Veterans Park, at the northern end of Main approximately 10 miles east of Sheridan, just Street. south of the Town of Arcadia. • Community Park, just east of Main Street • Strawtown Koteewi Park, a 700-acre park along Sixth Street/SR 38. approximately 14 miles from Sheridan, east • Biddle Memorial Park, at the intersection of Cicero. of SR 38 and SR 47 on the southeast corner • Bray Family Homestead Park, a 92-acre park of town. approximately 7 miles east of Sheridan along SR 38, just east of US 31. In addition to local parks, Sheridan’s residents can also enjoy many regional parks and recreation Sheridan does not have a parks and recreation opportunities. In Hamilton County alone, the nearby department and has no parks and recreation communities of Westfield, Carmel and Noblesville all master plan. Tight budgets have strained resources. have large parks and recreation systems. The town is Maintenance of Sheridan’s parks, such as planting also near Morse Reservoir, which provides boating, and upkeep, are completed by volunteers. swimming and fishing. Although money is scare, these excellent parks are crucial to the town’s identity and quality of life. Preserving and protecting assets such as Biddle Park also have potential economic benefits. For instance, Sheridan might develop the park to capitalize on spill-over from the tremendous effort Westfield is putting into its Grand Park.

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9 FARMLAND CLASSIFICATION MAP

88 Sheridan Comprehensive Plan

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GOALS AND OBJECTIVES This section repeats natural resources-related projects from the Sheridan Opportunities List and further elaborates on those goals or creates additional items. Opportunity items that are not detailed in this chapter will be covered in another. For example, the “fix drainage” goal is explained in more detail the Utilities Chapter.

• Pursue drainage problems first! • Improve the Symons - MUST Krause Drain. DO’S • Pursue a 7 to10-acre retention pond in the northeast quadrant of town. • Explore opportunities for Ashland brownfield. • Complete a 5-year parks and CAN recreation master plan. DO’S • Investigate small business/ Main Street business development incentives.

• Expand Veterans Park. • Expand Biddle Memorial Park SHOULD into a brownfield site. DO’S • Preserve agricultural land and rural character.

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Natural Resources Goal 1: Continue to build upon the success of the local parks and recreation facilities to leverage additional future potential for the community.

Strategies

• Complete a 5-year parks and recreation master plan for the town. This plan should be completed and approved according to Indiana Department of Natural Resources guidelines to make Sheridan eligible for state grant funds geared toward park and recreational facilities.

• Establish Sheridan Friends of the Parks, or similar non- profit organization, to help offset the costs associated with maintenance and upkeep of park property.

• Work with the Hamilton County Parks and Recreation Department to identify potential opportunities to develop future programs and facilities in Sheridan and/or Adams Township.

• Investigate possibilities of 4-H development next to Biddle Memorial Park.

• Develop plans for expansion of Biddle Memorial Park. One area of potential opportunity is the Ashland brownfield.

• Develop long-term strategic plans for the continued success and expansion of popular community events such as Bluegrass Fever and the Harvest Moon Festival.

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Natural Resources Goal 2: Work to protect and enhance important natural resources.

Strategies

• Protect and preserve wetlands within Sheridan’s planning jurisdiction by discouraging development on or near these valuable natural resources.

• Work with partners such as the Hamilton County Soil and Water Conservation District and the Indiana Department of Natural Resources to identify development threats to other important natural resource areas.

Natural Resources Goal 3: Protect and preserve the agricultural heritage of Sheridan by taking steps towards identifying and protecting the most productive farmland in the region.

Strategies

• Adopt a local development policy which describes the value of agriculture for the Sheridan community and identifies measures relating to the appropriate development on and around prime farmland within Sheridan’s planning jurisdiction.

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Natural Resources Goal 4: Take proactive steps towards reducing the impacts of local flooding on development potential and decreasing Sheridan’s potential impact on the regional water supply.

Strategies

• Work with organizations such as the Indiana Department of Environmental Management, the Hamilton County Surveyors Office and the White River Watershed Alliance to assess the impacts of Sheridan’s runoff on regional water quality in Eagle Creek and Morse reservoirs.

• Develop guidelines and strategies for managing Sheridan’s runoff in a manner which reduces or eliminates potential threats to the regional drinking water supply.

• Assemble a steering committee to take the results of the recently completed comprehensive stormwater master plan and identify appropriate stormwater best management practices that can be implemented immediately.

• Use results from the comprehensive stormwater master plan to apply for Indiana Office of Community and Rural Affairs grants to complete key projects.

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9 NATURAL RESOURCES & RECREATION

94 Sheridan Comprehensive Plan TRANSPORTATION

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KEY POINTS • Sheridan is well situated between major state and U.S. highways. Large traffic volumes create visibility and business opportunities, but those prospects will be diminished if efforts are not made to attract visitors.

• SR 47 is heavily traveled and runs through the heart of Sheridan. This corridor provides a great opportunity to showcase the town and attract attention to historic Main Street and the Countryside Industrial Park.

KEY ISSUES/EXISTING CONDITIONS According to INDOT data, traffic volumes on I-65 Major Roadways between Lebanon and Lafayette, which includes the One of the major north-south travel corridors Sheridan interchange, averages over 35,000 VPD. is U.S. 31, which is approximately 5 miles west of While the proximity of the interstate to Sheridan is Sheridan. This four-lane highway is being upgraded by distant enough that the town will likely not see di- the Indiana Department of Transportation (INDOT) rect benefit from the roadway, I-65 does help gener- to freeway standards from I-465 in Indianapolis to ate higher traffic volumes on other major roadways SR 38. surrounding Sheridan.

A major interchange was recently completed at SR 38 which provides Sheridan with direct access to this roadway. Volumes on U.S. 31 currently average more than 25,000 vehicles per day (VPD) between SR 38 and SR 47 and more than 30,000 VPD south of SR 32. These volumes should increase as development moves north from Carmel and Westfield and traffic increases due to increased efficiency.

Sheridan does not have direct interstate access within its planning jurisdiction but lies relatively close to I-65. This corridor sits about 16 miles west of Sheridan along SR 47 and has interchange access.

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TRANSPORTATION 10 The Regional Transportation Map on the The Functional Classification Map on page 99 following page shows the transportation system shows the major roadways surrounding Sheridan. around Sheridan. One of these roadways, U.S. 421, Roadway classifications are conducted by INDOT or historic Michigan Road, is just 6 miles west of and provide rankings based on intended level of ser- Sheridan along SR 47. U.S. 421 serves as a major vice. Roadways with a classification of collector or connector between Indianapolis and northern Indi- arterial are considered to be part of the state func- ana communities. This roadway averages well over tion classification systems and are eligible for state 10,000 VPD just south of Sheridan through Westfield and federal highway funds for improvements. and nearly 5,000 VPD between Westfield and Frank- fort. Rail Sheridan does not have an active rail line. The near- Major State Routes est major rail line is a CSX line more than 15 miles Two roadways provide the most direct impact on away on the western edge of Lebanon. Sheridan; SR 38 and SR 47. Of these, SR 47 provides the most direct access to both I-65 and U.S. 31. This However, Sheridan does have an abandoned line corridor runs east-west through Sheridan, where it running directly through its historic downtown. The becomes 10th Street. According to INDOT, SR 47 Monon line essentially bisects the town from south- averages approximately 3,700 VPD between I-65 and east to northwest. Hamilton Avenue and volumes jump to over 5,000 VPD from Hamilton to SR 38. This line presents real opportunities as a regional rails-to-trails project is converting this corridor to The intersection of SR 47 with SR 38 is a three-way a multi-use recreational trail. The project begins in stop where a major percentage of the traffic leaves Indianapolis near 10th Street and Massachusetts SR 47 to travel on SR 38 to U.S. 31 and Nobles- Avenue and continues north through many commu- ville. SR 47 continues east from this intersection nities until its current end in Westfield. and eventually becomes 236th Street in Noblesville. Traffic volumes decrease significantly beyond the SR 38 intersection.

SR 38 is the main connection between Sheridan and U.S. 31. The roadway is a two-lane state highway which averages nearly 5,000 VPD between SR 47 and U.S. 31. The road continues to wind through Sheridan along 6th Street, Main Street, and 1st Street. Traffic on SR 38 beyond the SR 47 intersection drops significantly, with fewer than 500 VPD.

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¬29 « Legend

County Boundary ¬28 Frankfort « Monon Trail Functional Classification

Interstate CLINTON Other Principal Arterial (OPA) Minor Arterial TIPTOMaNjor Collector Minor Collector

¤£421 «¬38 Kirklin ¤£31

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«¬47

¤£52 Ulen HAMILTON Lebanon BOONE «¬32 Westfield

¨¦§65 «¬39 Whitestown Carmel

«¬334 Zionsville «¬431

¨¦§465

MARION 0 1.5 3 HENDRICKS Williams Creek «¬267 V Graphic Scale (Miles)

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Plans for this corridor include making the Local Roads connection between Westfield and Sheridan, with The following local roads are important for Sheridan eventually becoming the northern terminus maintaining efficient traffic patterns: for the corridor. Sheridan recently completed a one-mile segment of trail with volunteer labor and Lamong Road: This north-south road is on the donated materials. eastern edge of the corporate limits. There is a gap in the roadway between E 10th Street (SR 47) and Public Transportation / Transit W. 246th Street. Completing this connection could Sheridan has one public transportation option help open up new opportunities for development on available through Hamilton County Express, the eastern edge of town. operated by Janus Developmental Services in Noblesville. The express provides on-demand pickup Lamong Road will eventually become an important services with 24-hour notice to county residents. north-south connector. The City of Westfield has With an aging population, the town might consider confirmed future plans to improve and extend Town working with other service providers to offer Road, which becomes Lamong Road near Sheridan. additional circulator or on-demand service for When these improvements are complete, this Sheridan residents. corridor will begin north of Sheridan and continue through Hamilton County to the south until it Airport eventually becomes Township Line Road in Marion Sheridan Airport on Jerkwater Road is a privately County. owned, public use airport. It opened in 1948 as a private airport for a local business leader. It consists of one paved runway and two grass runways. Three multi-hangar units provide storage for small aircraft.

The airport recently hosted an annual fly-in and drive-in event called “Wheels and Wings.” This event allows pilots to fly in and offers visitors airplane rides and a car show. Continued success of the Wheels and Wings event provides opportunities for the town to create a unique attraction. It might also be possible for the town to utilize this transportation resource to help boost visibility and services to attract additional business interest to the industrial park.

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TRANSPORTATION 10 Main Street: The road runs between SR 47 The town has an opportunity to take examples from and E. 1st Street through downtown Sheridan, nearby communities such as Carmel, which have connecting residents to the new public library and focused development around the trail corridor and Veterans Park. Many visitors to Sheridan travel on are now enjoying renewed economic vitality. Main Street, making its appearance and functionality critically important to downtown business growth. Extending the trail into Sheridan will not be without Additional streetscape improvements, pedestrian challenges. Developing the trail further north will be amenities and improved accessibility features such difficult due to fragmented property ownership and crosswalks and curb ramps would complement discontinuous right of way. There has also been a other recent improvements. severe lack of local funding available to the town to complete these types of projects. West Street: This road serves as the western boundary of the Countryside Industrial Park. The However, the town exhibited a “can do” attitude maintenance of this road is critical to providing when volunteer labor and materials were used to future truck access to the industrial park. Existing complete the one-mile-long section of the trail. The drainage problems and pavement upgrades need to town should work toward completing a plan for the be addressed. Monon Trail through Sheridan and use these plans to seek funding for land acquisition and trail con- Hinesley Road: This road connects to Sheridan struction available through INDOT and the Indiana High School two blocks east of Main Street along Department of Natural Resources. E. 1st Street. Given its connection to the school, pedestrian access and road maintenance should be considered a top priority to ensure student safety and community accessibility. Installation of sidewalks which connect the schools to the larger Sheridan community would be a good first step toward improving pedestrian access. This could be partially accomplished through a Safe Routes to School grant.

KEY OPPORTUNITIES Rails to Trails The Monon Rail Corridor is a huge opportunity for Sheridan. Completing the trail connection south to the City of Westfield will connect Sheridan to this larger regional trail initiative, and 15.7 miles of additional trail which have already been completed.

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Complete Streets Sheridan is a compact community with a strong centralized downtown. However, many WORKING WITH residents have described a lack of connectivity WESTFIELD that limits their ability to walk from their home to Main Street businesses. The town needs to begin planning and implementing improvements The most feasible short-term that provide better pedestrian and bicycle option for completion of the access. A complete sidewalk network should Monon Trail is the southern provide access for all users and encourage corridor which runs from a more active lifestyle. Transportation Sheridan through Adams improvements should look beyond the Township to the Washington automobile and include provision of facilities Township line. The City for bicycles, pedestrians and mobility-challenged of Westfield has plans to individuals to have travel options beyond their complete the Monon Trail vehicles. through its jurisdiction to Gateways the Washington Township High traffic volumes along SR 47 and SR 38 line. afford Sheridan an opportunity to showcase the community. The town should view critical There is still time for locations around the community as a ‘welcome Sheridan to begin working mat’ for visitors and passers-by. with Westfield to coordinate plans to extend the trail beyond its planned end in Sheridan. This cooperative effort can provide efficiencies for both communities and make grant funding more attractive to state and federal agencies.

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The Gateway and Corridor Improvements Map on page 104 shows recommended locations for gateway improvements. Each location is an • Improve/upgrade local roads. opportunity for Sheridan to improve traffic flow • Make sidewalk improvements and and the visual character of the roadway to convey a MUST improve connectivity. sense of anticipation for visitors and draws attention DO’S • Look into Safe Routes to to key community attractions. In addition to local School Program gateway improvements, the town should consider its proximity to U.S. 31 as an opportunity to raise awareness of Sheridan’s presence and make it a • Design development standards tourist destination. Many trucks and vehicles pass for the community, especially in along these highways daily and a display of Sheridan’s AN priority areas such as downtown. attractions can offer incentive for people to spend C O’S • Study possibilities for improving time and/or money in the community. These efforts D gateways into the town at SR 47/ can also be aligned with regional tourism and SR38. publicity initiatives, such as a billboard campaign, to help reach a more distant audience. • Extend Lamong Road, perhaps in GOALS AND OBJECTIVES conjunction with proposed deten- This section repeats transportation-related projects tion project. from the Sheridan Opportunities List and then ◊ Work with the county to elaborates on those goals or creates additional develop plans/fund project. items. Opportunity items that are not detailed • Improve SR 47 corridor. in this chapter will be covered in another. For SHOULD • Improve SR 47 / SR38 intersection example, the “fix drainage goal” is explained in the DO’S and create a community gateway. Utilities Chapter. • Complete Monon Trail expansion. ◊ This could be tied with development opportunities. ◊ Look into INDOT Transporta- tion Enhancement Funding.

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Transportation Goal 1: Ensure local roads are maintained and improved in a manner which allows for efficient local travel and provides flexibility for future commercial and industrial development.

Strategies

• Conduct a Lamong Road extension study to consider traffic needs, development opportunities and costs related to corridor extension.

• Develop an implementation and funding plan for continued improvements along Main Street. Set goals for completion of projects to develop a complete pedestrian-friendly streetscape environment, including continuous sidewalks, crosswalks, street trees and lighting from SR 47 to 1st Street and Veterans Park.

• Conduct a pavement inventory for all local roads within the community. Use the results of the inventory to categorize roadways based on existing pavement conditions and develop an implementation plan to complete improvements.

• Analyze the long-term needs for West Road to continue to provide a high level of service to Countryside Industrial Park. Evaluate existing drainage and roadway issues and develop a long-term strategy for completing improvements which will enable continued use of the road by heavy truck traffic.

• Apply for Safe Routes to School funding to make pedestrian improvements along Hinesley Road to connect larger portions of the community to the high school and elementary school campuses.

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Transportation Goal 2: Clean up Sheridan’s gateways and create a unique local identity through focused gateway and corridor improvements and an increased presence along regional travel corridors.

Strategies

• Develop a gateway improvements plan which identifies specific traffic and visual improvements for all corridors identified on the Gateway Improvements Map in this plan.

• Develop a plan for corridor improvements along SR 47 from the county line to the SR 38 intersection. Identify possible improvements which will enhance the appearance of the corridor and will provide additional accessibility for local residents.

• Work with INDOT to identify funding strategies for improvements along SR 47 and at the SR 47 and SR 38 intersection.

• Work with county and regional tourism officials to develop ideas and recommendations for elevating Sheridan’s presence along I-65 and U.S. 31. Develop a time-specific plan for implementation of the recommendations.

106 Sheridan Comprehensive Plan 10 TRANSPORTATION

Transportation Goal 3: Take advantage of the Monon Rail corridor to enhance Sheridan’s regional presence and create new development opportunities

Strategies

• Work with communities such as Indianapolis and Carmel to learn how to leverage rails-to-trails development into regional tourism and economic development opportunities.

• Develop a Monon Trail Development Master Plan for the town. The plan should identify possible trail routes through Sheridan, trail character, development opportunities and a time-specific phased implementation strategy.

• Develop a dedicated town capital account to accumulate funds for the development of the Monon Trail Master Plan and use as local match money for available grant funding resources.

• Leverage the Monon Trail Development Master Plan to seek funding for trail implementation projects from available resources such as the INDOT administered Transportation Alternatives Program and the IDNR Recreational Trails Program.

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Transportation Goal 4: Complete a comprehensive transportation development strategy which provides improved pedestrian and bicycle access throughout town.

Strategies

• Complete a self-evaluation and updated ADA Transition Plan in accordance with Federal Highway Administration and INDOT guidelines.

• Develop local guidelines for design and installation of sidewalk and bicycle facilities on local roads. Identify high priority travel routes and develop a hierarchy of implementation scenarios for a complete sidewalk network.

• Complete a local sidewalk inventory to identify location and condition of existing sidewalks, identify necessary repairs and find gaps in the local sidewalk network. Use the results of the inventory to develop a phased implementation plan for completing repairs and adding new sidewalks in town.

108 Sheridan Comprehensive Plan UTILITIES

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KEY POINTS • Utilities, or lack thereof, can have a major impact on Sheridan’s potential. As existing utility systems reach capacity, major upgrades will be required before the town can welcome additional development.

• Sheridan needs to direct new development to areas of town where existing utility infrastructure is available and able to handle additional demand.

Introduction The town of Sheridan operates municipal water and The wells are on the east side of town between wastewater utilities. As with many towns of its size, 2nd and 246th streets. Filters were upgraded at the the utilities struggle to keep utility rates affordable town’s water treatment facility in 2012. However, it while also providing a high level of service. This should be noted that the filter tanks are nearly 100 balance is challenging to achieve, and means the years old. While the steel is still solid, these units utilities must repeatedly defer maintenance and will ultimately need to be replaced in the short- to repair work in order to stay within current budgets. mid-term future. Average pumping from the water treatment facility is approximately 240,000 gal- The town has taken many steps to upgrade utility lons per day during normal conditions. During dry service, including water system upgrades and weather, usage increases to 300,000 to 380,000 gal- sanitary sewer repairs. Still, more can be done to lons per day. keep the utilities in working order. The town has a 1-million gallon elevated storage EXISTING CONDITIONS tank on the west side that was installed in the late Water System 2000s and is in good condition. The Utilities Re- Sheridan’s water system consists of three wells, an source Map on page 112 provides an overview of elevated tank, a treatment facility and distribution the water treatment system in Sheridan. lines. The water distribution system consists of plastic, The town’s water supply is in good condition and ductile iron and cast iron water mains. Many of the a third well was added in 2012. This provides the ductile iron and cast iron mains are from the 1930s city with two wells with strong output and allows a and are in poor condition. Town maintenance staff lesser-performing well to be used as a backup. noted that the lines have been patched repeatedly,

110 Sheridan Comprehensive Plan 11 UTILITIES and lines on busy roads are especially prone to This action prohibits the town from allowing any failure due to vibrations. Repairs and patching will new connections to the sanitary sewer system until be required in the short term to keep the lines in upgrades to are made. service, but many lines do ultimately need to be replaced. A sewer ban can stop new housing and industry from connecting to the plant. While the town has Sanitary Sewer not received notice that this is imminent, it is rec- Sheridan’s sanitary sewer system consists of conven- ommended that Sheridan plan on how to manage tional gravity sanitary sewers, lift stations and force inflow and infiltration – or expand the treatment mains and a wastewater treatment facility. facility to accommodate the flows within the town’s National Pollutant Discharge Elimination System The largest challenge for the sanitary sewer depart- (NPDES) permit requirements. ment is managing inflow and infiltration into the system. Dry weather flows to the plant are normal- The town has made notable strides to address ly 220,000 to 280,000 gallons per day. During wet stormwater drainage and ponding. While it is weather, peak flows routinely top 1,000,000 gallons understood that this will not solve sanitary sewer per day. The town’s wastewater treatment facility inflow issues, the hope is that addressing flooding is rated for a 500,000 gallon per day average, and will help reduce direct inflow into sanitary sewers. cannot accommodate high wet weather flows for an extended period. This results in the town bypassing flows into the receiving stream during wet weather.

Extensive testing has been completed in recent years, and several large sources of inflow were identified. However, subsequent repairs have not significantly reduced wet weather flows.

Of particular concern is that even the average daily flows can be quite high during wet weather. For three straight months in the spring of 2013, the cumulative average daily flow exceeded the plant’s 500,000 gallon per day capacity. When a plant exceeds 90 percent of its rated capacity, the Indiana Department of Environmental Management (IDEM) has the right to put the city on a “sewer ban.”

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! ! ! 112 Sheridan Comprehensive Plan ! 11 UTILITIES

Recent work included cleaning out sanitary sewer The town has been working with the Hamilton inlets and pipes throughout town. Many of these County Drainage Board to address this problem and structures have been silted solid for years. The a plan is being implemented to upgrade the drain. town is also working with the county to upgrade the George Symons and William Krause Drains The town has a comprehensive stormwater master (Symons-Krause Drain). This is a long- term project plan which was recently completed but plan that will provide a suitable outlet for stormwater recommendations cannot be implemented until flows. Without this outlet, there will continue to be the receiving drain (Symons-Krause) is updated. ponding and backup into the sanitary sewer system. Once Hamilton County has completed their drain improvements, Sheridan will begin implementation As plant upgrades are considered, the town should of their stormwater improvements, aided by funding also address other ongoing issues. The treatment assistance through Indiana Office of Community and plant operator notes that the current configuration Rural Affairs (OCRA) grant programs. results in large volumes of sludge as a by-product. Plant modifications can help alleviate this issue. In addition to the upgrades mentioned above, the town has issues with the local stormwater Stormwater infrastructure being overburdened with Stormwater infrastructure in Sheridan is in relatively sediment and debris, as cited by the Sheridan good condition but the town does experience Street Department. The department has been localized flooding during rains of one inch or more. systematically improving this situation by vacuuming Many stormwater issues the town experiences out the sediment and jet-cleaning the lines. Once originates with the Symons-Krause Drain. completed, this work will allow more of the stormwater which falls within the community to be efficiently transported to other locations.

More information about the conditions and importance of Sheridan’s stormwater system can be found in the Natural Resources Chapter of this plan.

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GOALS AND OBJECTIVES This section repeats utility infrastructure related projects from the Sheridan Opportunities List and then elaborates on those goals or adds additional items. Opportunity items that are not detailed in this chapter will be covered in another. For example, the “promote industrial park” goal is explained in the Economic Development Chapter.

• Pursue drainage problems first. • Improve the Symons - Krause Drain. • Pursue a 7 to 10-acre MUST retention pond in the DO’S northeast quadrant of town. • Create and follow a Sheridan Capital Improvement Plan to guide funding.

• Promote Industrial Park, in cooperation with IEDC / CAN OCRA. DO’S • Work with Duke Energy to promote the site.

SHOULD • N/A DO’S

114 Sheridan Comprehensive Plan 11 UTILITIES

Utilities Goal 1: Take initial steps to construct an expansion to the town’s wastewater treatment facility to avoid a potential sewer ban.

Strategies

• Pursue an OCRA planning grant to prepare a master plan for sanitary sewer improvements. This could include an evaluation of expansion options.

• Investigate the potential to construct a flow equalization basin to address wet weather flows.

• Proactively work with IDEM to avoid sewer ban status.

• Pursue OCRA construction grants for the implementation of treatment plant upgrades.

Sheridan Comprehensive Plan 115

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Utilities Goal 2: Implement phased plan to upgrade town’s aging water mains.

Strategies

• Pursue an OCRA planning grant for water upgrades. A single planning grant could be pursued for both water and sanitary sewer systems. A key goal of the water plan would be to determine recommended main replacement sizes and create an implementation strategy.

• Consider implementing water main replacement program with town resources. Many towns chose to replace several blocks of water mains each year, using part- time help.

• Pursue OCRA construction grants for the implementation of larger water main replacements.

116 Sheridan Comprehensive Plan 11 UTILITIES

Utilities Goal 3: Take incremental steps toward improving local drainage through stormwater system improvements.

Strategies

• Continue to support and fund the cleaning of existing stormwater catch basins and stormwater lines.

• Work with the Hamilton County Drainage Board on establishing a near-term completion date for the proposed Symons-Krause Drain improvements.

• Use the completion date of the Symons-Krause Drain improvements to begin planning for implementation of the recently completed Sheridan Stormwater Master Plan. Develop a schedule of improvements based on local funding availability and anticipated OCRA funding.

• Pursue OCRA grants for completion of high priority items from the Sheridan Stormwater Master Plan.

Sheridan Comprehensive Plan 117 IMPLEMENTATION

118 Sheridan Comprehensive Plan 12 IMPLEMENTATION IMPLEMENTATION The success of this comprehensive plan is in the • Take advantage of membership in the American hands of Sheridan’s residents - particularly its Planning Association (APA). This group publishes elected and appointed officials. a magazine, several newsletters, books and reports on planning topics, and also hosts an Although every citizen plays a role in steering the annual national conference that includes sessions community’s future, it is the officials who make for citizen planners. For more information the day-to-day decisions that determine what a consult www.planning.org. community looks like. • Take advantage of the Indiana Chapter of the Through the visioning and comprehensive plan American Planning’s Indiana Citizen Planner’s processes, community leaders demonstrated Guide free online at www.indianaplanning.org. This optimism for Sheridan’s future and the energy publication includes several chapters that can be to make it happen. This plan aims to keep the used as training materials for elected officials, momentum going. plan commission members, board of zoning appeals members, neighborhood organizations, Helping People Understand the Plan and citizen committees and contains information To get the most out of planning, some effort is specific to Indiana. needed to help residents understand its basic goals and tools. Following are strategies for getting the word out about how planning can help build the community’s future.

Training for Public Officials It is important that elected and appointed officials get the training they need to do the best job they can on planning and zoning matters.

State law and even local ordinances are often complicated. Kentucky now requires their plan commission members to receive training in order to serve; Indiana’s laws do not currently require that, but training is always a good idea. The following suggestions can assist the county in getting that training to public officials:

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Educating the Public about Planning and and roads. To complete future planning for the city, Zoning some additional research is needed. These studies Most citizens do not understand planning and zoning are: because it is not something they encounter every day. • Sheridan Strategic Plan: This document, done correctly, might supersede the need for After adoption of the plan, the town should make many of the other plans listed below. It would the plan available online and at the library, as well assemble the town’s “to-do” list and then give as consider providing training sessions for anyone specific instructions – timelines, budgets, respon- interested in how to use the plan. sible parties – for getting them done.

Plan commission and board of zoning appeals • Downtown Tax Increment Finance Study: hearings can also be educational opportunities. TIF districts can fund downtown revitalization. Many people in the audience have never attended To make it effective, a district should be in place one of the meetings and don’t know what to expect. before any major new investments are made The commission or board president can help downtown. Professional help is vital to setting make the meeting more understandable by making up a district correctly. some remarks at the beginning, explaining what will happen at the meeting. They can also assist • Housing Revitalization Plan: This blueprint by delivering a “play-by-play” or translation of the can be put together using this document and meeting, so that it is understandable to people in the the projects proposed by Hamilton County audience. Area Neighborhood Development (HAND). This low-cost study will help align priorities and The commission and board can also remove much direct resources. of the mystery of why they make certain decisions by sharing what state and/or local law criteria they are required to consider. The criteria can be posted on the wall, included on the back of the agenda, etc. Having a public discussion before voting will also help clarify why you are voting the way you do.

WHAT ADDITIONAL PLANNING IS NEEDED? Comprehensive plans touch on all of the major land use elements, but they do not take the place of technical studies for issues such as infrastructure

120 Sheridan Comprehensive Plan

IMPLEMENTATION 12

• Town of Sheridan Parks Master Plan: The Key Issues / Existing Conditions town needs an overall, far-looking guide to Limited Resources, Unlimited Need building upon its parks system. A parks master plan not only sets those priorities, but makes the A town the size of Sheridan has many costly assets town available for grants. Grants are available to which it is responsible for maintaining. Unfortunately facilitate the process. Coordinate the plan with for many small communities that provide their Westfield and the county. own municipal services such as water treatment, economies of scale do not work in their favor. In • Gateway Improvement Plan: Develop a communities such as this, a smaller local tax base document which identifies specific traffic and puts constant pressure on the town to allocate visual improvements for all corridors identified resources in a responsible manner. This leaves on the Gateway Improvements Map in this plan. these communities, Sheridan included, with little ability to fund projects beyond the basic necessities • Monon Trail Development Master Plan: required to operate the town. Limited resources The plan should identify possible trail routes mean many major capital expenditures, such as through Sheridan, trail character, development sewage treatment plant upgrades, storm sewers, and opportunities and a time-specific phased roadway repairs, are deferred. implementation strategy.

• Downtown Revitalization Plan: This plan would lay the groundwork for the marketing, landscaping and promotional efforts needed to pump new life into downtown Sheridan.

CIP DESCRIPTION

Key Points • A Capital Improvements Program, or CIP, can be a valuable tool which will enable Sheridan to plan ahead for investment in town infrastructure improvements within the constraints of available town budgets and anticipated grant awards.

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Deferred maintenance on critical infrastructure, Most CIPs are developed for a 5-year time frame much of which is already aging beyond its functional and included in the annual operating budgets for the lifespan, means that a catastrophic failure could community. happen at any time. This plan has taken an important initial step on So, how should a town like Sheridan proceed? the path to developing a CIP-type plan in Sheridan. Through the planning process, the community has One strategy employed by many communities, and identified its greatest needs and those needs have required in many states, is the completion of a been prioritized into separate lists based on their Capital Improvements Program, or CIP for short. A urgency and required resources to complete. CIP is a plan for funding the highest priority projects in a manner that matches the need with available The town can now decide to take the next step local resources and potential grant funding sources. toward having a predictable way of completing projects by taking these needs and developing a plan, The process is not simple, but at the end the similar to a CIP, which places emphasis on getting community is left with a prioritized list of projects the highest priority projects completed within the for a period into the future and a roadmap for how predicted available funding. the project will get funded.

For a community that has not previously completed a CIP and has no established framework for development and approval of such a plan, there are many different approaches that can be taken. State legislation on the development of a CIP is very broad and thus leaves the process open for tailoring to individual municipality needs. One of the main outcomes which can be achieved with a CIP is building consensus among elected officials, town staff and public stakeholders.

This will ultimately allow the town of Sheridan to define a project development and implementation process which is transparent and less scrutinized on an annual basis.

122 Sheridan Comprehensive Plan

IMPLEMENTATION 12 FUNDING SOURCES A list of potential funding sources for the implementation items derived from the plan is included in the Appendix.

Implementation Chart This document provides years’ worth of suggestions for projects. It can be overwhelming to think about undertaking all the recommendations. Fortunately, the goals can be reduced to incremental steps, as shown in the following chart.

To get all the work done town leaders should organize local volunteers into small teams, based upon their interests. For example, an economic development team, parks team, housing team and stormwater team. Some of these teams might have members from existing organizations, such as HAND on the housing team, or the redevelopment commission on the Economic Development teams.

The following chart summarizes all of the actions steps from the chapters. Each item is grouped under a subject category and includes a timeline. The chart can act as a “to do” list for local leaders. For best results it should be reviewed at least annually, perhaps at a regularly scheduled meeting of the town council.

Sheridan Comprehensive Plan 123 TOWN OF SHERIDAN - MUST DO IMPLEMENTATION TABLE MUST DO’S NEXT STEPS RESPONSIBLE PARTIES

Develop a long-term plan to address local flooding issues based on Symons - Krause Drain Street Department anticipated Symons-Krause drain improvements.

Work with IDNR and Hamilton County on a development plan for Stormwater Board / Public Works the pond and surrounding area. Work with IDNR and Hamilton County to formalize development Stormwater Board / Public Works plans and coordinate design and 7 to 10-acre Retention Pond construction activities. Work with Hamilton County/IDNR/ OCRA to fund a long-range land use/ economic development plan for the Economic Development Team area surrounding the 7 to 10-acre retention pond.

Develop a long-term identity and entrance plan for the Countryside Economic Development Team Industrial Park. Develop a long-range plan that details developer driven and/or TIF- Economic Development Team West Road Drainage funded infrastructure improvements to the West Road corridor. Work with OCRA to find a funding mechanism for the implementation Economic Development Team of Countryside Industrial Park entrance and signage improvements.

124 Sheridan Comprehensive Plan TOWN OF SHERIDAN - MUST DO IMPLEMENTATION TABLE MUST DO’S NEXT STEPS RESPONSIBLE PARTIES

Work with Hamilton County surveyors to finalize completion schedule Stormwater Board / Public Works for Symons-Krause Drain improvements. Develop a plan to outline funding and a timetable for incremental Public Works / Town Council Overall Town Drainage improvements to the local drainage system. Develop detailed funding strategies for the completion of recommenda- Public Works / Town Council tions in the Comprehensive Storm- water Master Plan document.

Work with the street department to outline a prioritized list of deferred Town Council roadway improvements.

Identify local funding sources for de- Improve / Upgrade Local Roads Town Council ferred local roadway improvements.

Develop a phased implementation strategy for critical local road repairs Street Department based upon predicted available town and grant funding sources.

Develop a local steering committee to identify and scope major projects Town Council for a 5-year period. Sheridan Capital Improvements Program Prioritize each of the projects identified by the local steering commit- CIP Steering Committee / tee based on factors such as need, Department Staff urgency, costs & schedule.

Sheridan Comprehensive Plan 125 TOWN OF SHERIDAN - MUST DO IMPLEMENTATION TABLE (cont’d) TASK NEXT STEPS RESPONSIBLE PARTY

Develop estimated project costs and funding sources for each of the Sheridan Capital Improvements Pro- major projects and compare against CIP Steering Committee / gram (cont’d) available town resources. Include Department Staff estimates of anticipated local money and grant amounts.

Partner with state and county economic development organizations to Economic Development Team promote the Countryside Industrial Park. Work with state/county economic development partners to clearly West Road Economic Development Economic Development Team / define a public relations/promotional Opportunities Town Council campaign for the local Sheridan economic development team. Work with OCRA to find funding for a long-range economic development Economic Development Team master plan for Sheridan.

Complete legal documents for the Economic Development Team annexation of SR 47 properties. Develop long-range plans for includ- Economic Development Team / ing Lamong Road East within town Town Council Annexation boundaries. Work with Adams Township trustee on a plan to establish a joint planning Town Council and zoning agreement between the town and township.

Work with HAND and/or Habitat for Humanity to outline and define Housing Team / HAND Launch Maintenance / Homeowners local needs and program details. Program Investigate IHCDA Owner Occupied Housing program funding for specific Housing Team / HAND local programs

126 Sheridan Comprehensive Plan TOWN OF SHERIDAN - MUST DO IMPLEMENTATION TABLE (cont’d) TASK NEXT STEPS RESPONSIBLE PARTY

Develop a local task force to plan and organize scheduled community Launch Maintenance / Homeowners clean-up days. Recruit local organiza- Housing Team / HAND Program (cont’d) tions such as schools, churches, and businesses to provide labor and in- kind contributions to the activities.

Sheridan Comprehensive Plan 127 TOWN OF SHERIDAN - CAN DO IMPLEMENTATION TABLE

TASK NEXT STEPS RESPONSIBLE PARTY

It’s distasteful, expensive and politically dangerous, but enforcing ordinances against unkempt or danger- Town Council ously deteriorating properties is key to revitalization. Enforcing existing regulations is tough enough, but the town might Public Safety and Code Enforcement be able to make the job easier – or Town Council at least clearer – by adopting new ordinances, as recommended in the Land Use Chapter. Ticketing procedures, explained in the Land Use Chapter, can help Town Council reduce the court expenses that are associated with code enforcement.

Promotion of the facility will bring Seek funding for community center more revenue to fund capital im- Town Council renovation provements.

Create design standards for the For more information, see the Land community, especially in priority Town Council / Main Street Group Use chapter of this plan. areas such as downtown.

Adopt a zoning ordinance to limit For more information, see the Land junkyard locations within the Town Council Use chapter of this plan. community.

Consider suggestions on how For more information, see the Land to curb vandalism within the Town Council Use chapter of this plan. community.

Consider implementing an Environ- For more information, see the Land mental Nuisance Ordinance to keep Town Council Use chapter of this plan. Sheridan safe and livable.

128 Sheridan Comprehensive Plan TOWN OF SHERIDAN - CAN DO IMPLEMENTATION TABLE

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For more information, see the Land Update the city’s zoning ordinance. Town Council Use chapter of this plan.

Update the city’s subdivision con- For more information, see the Land Town Council trol ordinance. Use chapter of this plan.

Until outside investors “discover” Sheridan, the town will have to lead Economic Development Team / the way in revitalization. Sheridan Create a downtown tax increment Main Street Group Main Street has projects lined up, finance district to raise resources but needs funding. for development. Creates TIF district before any Economic Development Team / major new investments are made Main Street Group downtown.

Work with communities such as Take advantage of the Monon Rail Indianapolis and Carmel to learn corridor to enhance Sheridan’s how to leverage rails-to-trails Parks Team regional presence and create new development into regional tourism development opportunities and economic development opportunities.

Sheridan Comprehensive Plan 129 TOWN OF SHERIDAN - CAN DO IMPLEMENTATION TABLE

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Develop a Monon Trail Development Town Council / Parks Team Master Plan for the town.

Develop a dedicated town capital account to accumulate funds for the development of the Monon Trail Town Council / Parks Team Master Plan and use as local match Take advantage of the Monon Rail money for available grant funding corridor to enhance Sheridan’s resources. regional presence and create new Leverage the Monon Trail development opportunities (cont’d) Development Master Plan to seek funding for trail implementation projects from available resources Town Council / Parks Team such as the INDOT administered Transportation Alternatives Program and the IDNR Recreational Trails Program.

Adopt a local development policy which describes the value Protect and preserve the agricultural of agriculture for the Sheridan heritage of Sheridan by taking steps community and identifies measures towards identifying and protecting Town Council relating to the appropriate the most productive farmland in the development on and around prime region. farmland within Sheridan’s planning jurisdiction.

Complete a comprehensive Complete a self-evaluation and up- transportation development strategy dated ADA Transition Plan in accor- Town Council which provides improved pedestrian dance with Federal Highway Adminis- and bicycle access throughout town. tration and INDOT guidelines.

130 Sheridan Comprehensive Plan TOWN OF SHERIDAN - CAN DO IMPLEMENTATION TABLE

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Complete a local sidewalk inventory to identify location and condition of existing sidewalks, identify necessary repairs and find gaps in the local sidewalk Town Council network. Use the results of the Complete a comprehensive inventory to develop a phased transportation development implementation plan for complet- strategy which provides improved ing repairs and adding new side- pedestrian and bicycle access walks in town. throughout town. (cont’d) Develop local guidelines for design and installation of sidewalk and bicycle facilities on local roads. Identify high priority travel Town Council routes and develop a hierarchy of implementation scenarios for a complete sidewalk network.

Encourage plans to convert the old Adams Township Consoli- dated Grade & High School site Economic Development Team / into the Hamilton County Event Main Street Group Center. Work with the developer Explore public-private on incentives or other forms of partnerships for downtown cooperation. projects. Seek ways to capitalize on the project to promote downtown. For example, sidewalks or a walk- Town Council / Main Street Group ing path could be created from the old school site to Main Street.

Sheridan Comprehensive Plan 131 TOWN OF SHERIDAN - CAN DO IMPLEMENTATION TABLE

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Small and Simple Grants to provide neighborhoods with the op- Town Council / Housing Team portunity to initiate projects that require $1,000 or less. Neighborhood Improvement Create incentives to encourage Grants to pay for physical proj- Town Council / Housing Team neighborhood investment and ects that require $2,000 or more. growth. Neighborhood Cleanup Grants include a city staff/resident partnership. The neighborhood orga- Town Council / Housing Team nizes the event and provides all the volunteers; the city provides the dumpsters, etc.

Protect and preserve wetlands within Sheridan’s planning jurisdiction by discouraging development Town Council / Parks Team on or near these valuable natural resources. Work to protect and enhance Work with partners such as the important natural resources. Hamilton County Soil and Water Conservation District and the Indiana Department of Natural Town Council / Parks Team Resources to identify development threats to other important natural resource areas.

132 Sheridan Comprehensive Plan TOWN OF SHERIDAN - SHOULD DO IMPLEMENTATION TABLE

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Work with developer on land avail- Expand Veterans Park. Town Council / Parks Team ability.

Pursue an OCRA planning grant to prepare a master plan for sanitary sewer improvements. This could Town Council include an evaluation of expansion options. Take initial steps to construct an Investigate the potential to construct expansion to the town’s wastewater a flow equalization basin to address Town Council treatment facility to avoid a potential wet weather flows. sewer ban. Proactively work with IDEM to avoid Town Council sewer ban status. Pursue OCRA construction grants for the implementation of treatment Town Council plant upgrades.

Study feasibility of upper-story hous- Housing Team / HAND / Main Street ing on Main Street. Group

Town Council / Create an historic district / Main Apply for OCRA funding for revital- Economic Development Team / Street revitalization plan. ization plan. Main Street Group

Sheridan Comprehensive Plan 133 TOWN OF SHERIDAN - SHOULD DO IMPLEMENTATION TABLE TASK NEXT STEPS RESPONSIBLE PARTY

Work with organizations such as the Indiana Department of Environmental Management, the Hamilton County Surveyors Office and the White River Watershed Town Council / Stormwater Team Alliance to assess the impacts of Sheridan’s runoff on regional water quality in Eagle Creek and Morse reservoirs. Develop guidelines and strategies for managing Sheridan’s runoff Take proactive steps toward re- in a manner which reduces or Town Council / Stormwater Team ducing the impacts of local flood- eliminates potential threats to the ing on development potential and regional drinking water supply. decreasing Sheridan’s potential im- Assemble a team to take the pact on the regional water supply. results of the recently completed comprehensive stormwater master plan and identify Town Council / Stormwater Team appropriate stormwater best management practices that can be implemented immediately. Use results from the comprehensive stormwater master Town Council / Stormwater Team / plan to apply for OCRA grants OCRA to complete key projects.

Complete a 5-Year parks and rec- Town Council / Parks Team reation master plan Establish Sheridan Friends of Continue to build upon the the Parks, or similar non-profit Town Council / Parks Team success of the local parks and organization. recreation facilities to leverage Establish a parks oversight com- additional future potential for the mittee or a parks and recre- community. ation board to make decisions Town Council / Parks Team related to the funding, maintenance and programming of Sheridan’s park resources.

134 Sheridan Comprehensive Plan TOWN OF SHERIDAN - SHOULD DO IMPLEMENTATION TABLE

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Develop plans for expansion of Biddle Memorial Park. One area of potential opportunity is the Ashland Town Council / Parks Team brownfield, in which the 50-acre side with preliminary environmental assessment is underway. Investigate possibilities of 4-H development next to Biddle Town Council / Parks Team Continue to build upon the success Memorial Park. of the local parks and recreation Work with the Hamilton County facilities to leverage additional future Parks and Recreation Department Town Council / Parks Team / City of potential for the community. (cont’d) to identify potential opportunities Westfield / Hamilton County Parks to develop future programs and and Recreation Department facilities in Sheridan and/or Adams Township. Develop long-term strategic plans for the continued success and expansion of popular community events Town Council / Parks Team such as Bluegrass Fever and the Harvest Moon Festival.

Conduct a Lamong Road extension study to consider traffic needs, Town Council development opportunities and costs related to corridor extension. Ensure local roads are maintained Develop an implementation and and improved in a manner which funding plan for continued improve- allows for efficient local travel and ments along Main Street. Set goals provides flexibility for future com- for completion of projects to de- mercial and industrial development. velop a complete pedestrian-friendly Town Council / Main Street Group streetscape environment, including continuous sidewalks, crosswalks, street trees and lighting from SR 47 to 1st Street and Veterans Park.

Sheridan Comprehensive Plan 135 TOWN OF SHERIDAN - SHOULD DO IMPLEMENTATION TABLE

TASK NEXT STEPS RESPONSIBLE PARTY

Conduct a pavement inventory for all local roads within the community. Use the results of the inventory to categorize roadways based on exist- Town Council ing pavement conditions and develop Ensure local roads are maintained an implementation plan to complete and improved in a manner which improvements. allows for efficient local travel and Analyze the long-term needs for provides flexibility for future com- West Road to continue to provide a mercial and industrial development. high level of service to Countryside (cont’d) Industrial Park. Evaluate existing drainage and roadway issues and Town Council develop a long-term strategy for completing improvements which will enable continued use of the road by heavy truck traffic.

Develop a gateway improvements plan which identifies specific traffic and visual improvements for all Town Council corridors identified on the Gateway Improvements Map in this plan. Develop a plan for corridor improve- Clean up Sheridan’s gateways and ments along SR 47 from the county create a unique local identity through line to the SR 38 intersection. Iden- focused gateway and corridor im- tify possible improvements which Town Council provements and an increased pres- will enhance the appearance of the ence along regional travel corridors. corridor and will provide additional accessibility for local residents. Work with INDOT to identify funding strategies for improvements along SR 47 and at the SR 47 and SR Town Council / INDOT 38 intersection. Look into INDOT Transportation Enhancement funding.

136 Sheridan Comprehensive Plan TOWN OF SHERIDAN - SHOULD DO IMPLEMENTATION TABLE

TASK NEXT STEPS RESPONSIBLE PARTY

Work with county and regional Clean up Sheridan’s gateways and tourism officials to develop ideas create a unique local identity through and recommendations for elevating Town Council / Economic focused gateway and corridor im- Sheridan’s presence along I-65 and Development Team / County provements and an increased pres- U.S. 31. Develop a time-specific plan Officials ence along regional travel corridors. for implementation of the recom- (cont’d) mendations.

Pursue an OCRA planning grant for water upgrades. A single planning grant could be pursued for both water and sanitary sewer systems. A Town Council key goal of the water plan would be to determine recommended main replacement size and implementation Implement phased plan to upgrade strategy. town’s aging water mains. Consider implementing water main replacement program with town resources. Many towns chose to Town Council replace several blocks of water mains each year, using part-time help. Pursue OCRA construction grants for the implementation of larger Town Council water main replacements.

Sheridan Comprehensive Plan 137 APPENDIX

138 Sheridan Comprehensive Plan

APPENDIX 13 APPENDIX TABLE OF CONTENTS

Demographic Report ...... 140 - 166

Steering Committee Meeting Summaries ...... 167 - 188

Public Meeting Summar y ...... 189 - 194

Funding Sources ...... 195 - 199

Public Sur vey Results ...... 200 - 208

Town Council Resolution ...... 209 - 210

Sheridan Comprehensive Plan 139 APPENDIX: DEMOGRAPHIC PROFILE 13 ______Demographic Profile: Town of Sheridan, Indiana

Introduction & Note on Sources

The purpose of a demographic report is to give elected officials, community leaders, and ordinary citizens a snapshot of the main demographic features of their community—the trajectory of population growth through time, the age and income distribution of the community as well as the proportion of individuals living below the poverty line, the educational attainment and unemployment rates within the community, and so forth. Ideally, such information enables leaders to make informed decisions and to craaft policies ccording to the best information available. The information contained in this report should be thought of as a tool to aid in the decision-making process as Sheridan leaders and community members consider the many important issues facing their community moving forward.

Most of the demographic data available for Sheridan in January of 2013 come from the U.S. Census Bureau. The Census Bureau conducts its official U.S. population census every ten years, the most recent having been taken in April of 2010. The Census Bureau also conducts yearly surveys for areas with a population greater than 65,000, but for areas like Sheridan that have a population of less than 20,000, the Census combines multiple surveys from a five-year period. The latter, called the American Community Survey, is also a major source of information for this report.

Additional sources include the U.S. Bureau of Labor Statistics, the Bureau of Economic Analysis, the Indiana Department of Education, the National Low Income Housing Authority, and the Indiana Business Research Center. In some instances, information specifically on Sheridan was unavailable; in such cases, we collected information on Hamilton County instead. In every instance, we used the most up-to-date and specific data available.

140 Sheridan Comprehensive Plan 13 ______Population

Sheridan has seen modest—and at times halting—growth over much of the past century, though there has been a noticeable uptick in the growth rate since 1990. Figure 4.1 shows U.S. Census counts of Sheridan’s population for each decade going back to 1920. Over the seven decade stretch between 1920 and 1990, Sheridan grew by a mere 16 percent. Over the same period, Indiana’s population more than doubled and the U.S. population nearly tripled. Since 1990, however, Sheridan’s population grew by more than 30 percent, as the greater Indianapolis metropolitan area began rapidly expanding outward beginning in the 1990s, sparking significant growth throughout Hamilton County.

The most recent data available from the Indiana Business Research Center (IBRC) indicate that Sheridan’s 2011 population reached 2,744, making it the 46th fastest growing town or city in Indiana (out of a total of more 600 towns and cities in the state), growing by more than two percent between July 2010 and July 2011 alone.

Source: STATS Indiana; Indiana Business Research Center

The IBRC also publishes county-level population projections going several decades into the future using a statistical model that extrapolates future growth based on the age and sex of the

141 Sheridan Comprehensive Plan 13 ______population, fertility, mortality, and migration rates. Figure 4.2 shows these projections in five- year increments for Hamilton County going up to 2050. According to the IBRC’s forecast, Hamilton County is expected to grow quite rapidly in the coming years, averaging about 25 percent growth per decade over the next 40 years and doubling in size by 2050. The same model projects that Indiana as a whole will only grow by about 15 percent over the same period, meaning that Hamilton County is expected to grow nearly seven times faster than the state as a whole.

Source: STATS Indiana; Indiana Business Research Center Age

In terms of Sheridan’s age distribution—which plots the percentage of the total population falling into different age groups—Sheridan roughly mirrors the statewide average, though there are some noteworthy differences. Figure 4.3 compares the proportion of Indiana’s population (represented by the blue bars) with the proportion of the Sheridan’s population (represented by the red bars) falling into different age groups.

Two key differences between Sheridan and Indiana stand out: the proportion of individuals under the age of 15 is smaller in Sheridan than in Indiana by about four percent and the proportion of the Sheridan population that is retirement aged (65+) is about two percent higher in Sheridan than at the state level. While these differences may seem slight, they imply that the proportion of Sheridan’s population that is working aged (roughly 16 to 65) is about six percent lower than the state average. This means that Sheridan could see a slightly smaller than average cohort of new retirees in coming years, along with a larger than average cohort of working aged adults.

142 Sheridan Comprehensive Plan 13

______

Source: U.S. Census Bureau, 2007-2011 American Community Survey

143 Sheridan Comprehensive Plan 13 ______Again, while town-level data are unavailable, Figure 4.4 shows the IBRC’s estimates of future median ages in Hamilton County and Indiana up to 2050, which should give an approximate sense of how the populations as a whole are aging. (Note: the median age in a population is the “middle” age, where half of the population is younger and half of the population older). Both medians are trending upward, though Hamilton County’s is doing so at a faster rate than Indiana’s, indicating that Hamilton County is aging faster than Indiana. By 2035, Hamilton County’s median age is expected to surpass the state median, and by 2050—the last year for which projections are available—the median age in Hamilton County is expected to be 2.6 years greater than the state median.

Source: STATS Indiana; Indiana Business Research Center

According to the 2007-2011 American Community Survey, Sheridan’s current median age is 34.7 years, compared to the current state median of about 36.8. The data from Figure 4.4, above, suggests that Sheridan will likely see a smaller cohort of retirees in the next few years; however, there are several scenarios in which this trend may not hold in the longer term. For instance, substantial in-migration of elderly retirees seeking comparatively less expensive housing in close proximity to Carmel, Noblesville, and Indianapolis could result in an older overall population. Likewise, the exceptional growth seen in recent years in nearby Carmel, Westfield, and especially Fishers could spread to Sheridan, possibly resulting in a much older population than might be suggested by a cursory look at the current population median.

144 Sheridan Comprehensive Plan 13 ______School Enrollment Figure 4.5 shows Indiana Department of Education (IDOE) enrollment statistics for Sheridan Community Schools over the past five school years. Enrollment has remained more or less steady during the five-year period, ranging from a maximum of 1,163 during the 2007-2008 school year to a minimum of 1,117 in 2009-2010. Since 2007, enrollment has declined by about four percent, though this represents a decline of only 44 students.

Source: Indiana Department of Education

Figure 4.6 shows the percentage change in enrollment by individual school during the same time period. Sheridan Elementary and High Schools both experienced modest declines in enrollment of less than two percent, while Sheridan Middle School experienced a more substantial decline of 11.3 percent.

Source: Indiana Department of Education

145 Sheridan Comprehensive Plan 13 ______Educational Attainment

Figures 4.7a and 4.7b (on the following page) both show the distribution of Sheridan’s population aged 25 and older by education level in comparison to statewide statistics. Figure 4.7a reveals that there are nearly five percent more Sheridan residents without a high school degree (diploma or G.E.D.) than at the state level and, on the other end of the spectrum, nearly five percent fewer with a Bachelor’s degree and more than six percent fewer with a graduate or professional degree.

Figure 4.7a. Educational Attainment (2007- 2011)

37.2% 35.8%

27.0%

8.1%

7.5% 6.3% 20.6% 18.2% 13.3% 14.6% 1.7% 9.6%

Less than high High school Some college, no Associate's Bachelor's Graduate or school degree graduate degree degree degree professional (includes degree equivalency)

Indiana Sheridan

Sources: U.S. Census Bureau, 2007-2011 American Community Survey

Figure 4.7b shows the educational attainment levels by minimum degree type (high school degree versus bachelor’s degree) over a span of two decades from 1990 to 2010. As indicated in Figure 4.7a, Sheridan has tended to lag behind state education levels over the last twenty years, though it has seen marked improvements since the 1990 census. The percentage of Sheridan residents with at least a high school degree has jumped by more than 15 percent since 1990, when nearly a third of the population were not high school graduates. Similarly, the percentage of Sheridan residents with at least a bachelor’s degree has climbed by six percent since 1990, though in this category Sheridan still trails the state average by more than 11 percent.

146 Sheridan Comprehensive Plan 13 ______

Figure 4.7b. Educational Attainment (1990- 2011) Indiana

Sheridan

86.6% 84.1% 82.1%

81.8%

75.6%

66.5%

22.7% 15.6% 19.4% 15.9% 11.4% 5.3%

1990 2000 2007-2011 1990 2000 2007-2011 High School Graduate or Higher Bachelor's Degree of Higher

Sources: U.S. Census Bureau (1990 & 2000), 2007-10 American Community Survey

Finally, Figure 4.8 shows the graduation rates by four year cohorts for Indiana and Sheridan Community Schools for the 2006-07 through the 2010-11 school years. Graduation rates for both Sheridan and Indiana can differ significantly from one year to the next, as is evident in the thirteen percent increase in Sheridan graduation rates from the 2007-2008 to 2008-2009 school years, followed by a six percent decrease just two years later. On average, Indiana graduated just over 81 percent of each cohort during the years examined, while Sheridan Community Schools fared slightly better, graduating 82 percent of each cohort on average.

Source: Indiana Department of Education

147 Sheridan Comprehensive Plan 13 ______Poverty

A brief note on poverty rates: Poverty rates track the percentage of individuals who are at or below the poverty threshold (or poverty line). The poverty threshold is an income amount determined by the Census Bureau as necessary for a family of a given size to meet its minimum basic needs. While adjustments are made according to the size and age of family members, the same thresholds are used throughout the United States and do not vary geographically. This means that they do not take differences in the cost of living between different regions into account, which in turn means that they could potentially over- or under-estimate the number of people living in poverty in a particular area.

Figure 4.9 shows the percentage of individuals falling below the poverty threshold in Sheridan, Hamilton County, and Indiana over a two-decade period. A common theme is that poverty dropped slightly for all three areas from 1990 to 2000 and spiked between 2000 and 2007-2011 as the economic downturn set in. Though Sheridan’s most current poverty rate estimate of 9.3 percent is better than the statewide rate of 14.1 percent, it still trails the Hamilton County poverty rate by nearly 5 percent and is about 3.5 percent higher than the 2000 figure.

Sources: U.S. Census Bureau (1990 & 2000); 2007-2011 American Community Survey

148 Sheridan Comprehensive Plan 13 ______

Another measure of the relative affluence or poverty of a region is the number of students who are served free or reduced lunches in public schools. The percentage of students receiving this aid in Indiana and Sheridan Community Schools is shown in Figure 4.10. As was suggested by the overall poverty figures above, Sheridan fares better than the statewide average, with eleven percent fewer children on free lunch than the state average and about the same percentage on reduced lunch.

Source: Indiana Department of Education

149 Sheridan Comprehensive Plan 13 ______Income

Figure 4.11 shows the change in median household income in Sheridan and Indiana from 1990 to the 2007-2011 ACS in real (inflation-adjusted) dollars. The pattern shown here is a familiar one seen around the country, with real incomes rising during the 1990s and declining in the 2000s following the Great Recession. In Sheridan’s case, the real median household income rose by 23 percent between 1990 and 2000 before declining by about two percent between 2000 and 2007-2011. The relatively slight decline in the 2000s following such marked growth in median income in the 1990s suggests that with respect to income, Sheridan has not felt the economic pain of the downturn to the same extent as the rest of the state. Whereas Sheridan’s median income grew by about 20 percent over the two decades examined here after adjusting for inflation, the statewide median actually declined by more than 7.3 percent.

Sources: U.S. Census Bureau (1990 & 2000); 2007-2011 American Community Survey *In 2012 dollars. Calculated using the Bureau of Labor Statistics’ CPI Inflation Calculator

According to the Bureau of Labor Statistics’ Consumer Price Index, inflation has averaged about 2.6 percent per year since 1990, which in many places has had the effect of eroding household income faster than wages have increased. Such has been the case in the state of Indiana as a whole, which has saw a decline in household income of nearly $4,000 between the 1990 census and the 2007-2011 ACS, once adjustments for inflation are made. Fortunately, the median Sheridan household has seen a real net gain in incomes of about $9,000 since the 1990s.

150 Sheridan Comprehensive Plan 13 ______Employment

Figure 4.12 shows that, as with the rest of Indiana, the major industries in Sheridan (by percentage of the population employed) are manufacturing; retail trade; and educational services, healthcare, and social assistance. Nearly a fifth of all employees in Sheridan work in education, health, and social assistance, which collectively constitute the largest industry category, while about 15 percent work in retail, the second largest industry. Manufacturing is the third largest industry, although the proportion of workers employed in manufacturing in Sheridan is about five percent less than the proportion employed at the state level. Construction, arts and entertainment, other services, and public administration are the next three largest industries, each employing between five and eight percent of the population.

Source: U.S. Census Bureau, 2007-2011 American Community Survey

151 Sheridan Comprehensive Plan 13 ______Figure 4.13 shows the top ten private sector employers in Hamilton County. The range in size is large, from 2,500 employed by Sallie Mae to 500 employed by Indiana Mills & Manufacturing.

Figure 4.13: Top Ten Employers in Hamilton County

Company Location # of Employees

Sallie Mae Fishers 2,500

CNO Financial Group Carmel 1,750

Liberty Mutual Carmel 1,200

The Capital Group Carmel 1,000

RCI Carmel 900

Firestone Carmel 825

SMC Corporation Noblesville 800

Midwest ISO Carmel 700

Roche Diagnostics Fishers 600

Indiana Mills & Mfg., Inc. Westfield 500 Source: Hamilton County Alliance

152 Sheridan Comprehensive Plan 13 ______Figure 4.14 gives a more detailed breakdown of employment and industry data for Hamilton County from the U.S. Bureau of Economic Analysis. It shows the earnings of each industry (in millions of dollars), the number of jobs in each industry, and the average earnings of each job in 2011. The average annual salary of Hamilton County’s 175,173 jobs was $46,845, and the total annual earnings in all industries added up to about $8.2 billion. The largest industry in the county by earnings was finance and insurance, which earned nearly $1.1 billion in 2011, followed by professional and technical services ($1 billion), health care and social assistance ($875 million), and government and government enterprises ($733). Industries with the highest average earnings include utilities ($153,837), management ($102,662), and forestry and fishing ($116,601, though it should be noted that this industry accounts for only 0.1 percent of total county employment). Industries with the lowest average earnings include arts and entertainment ($14, 261), real estate and rental leasing ($20,119), and educational services ($18,106).

Figure 4.14 Employment & Earnings by Industry (NAICS) in 2011

% in Avg. % in Earnings Industry Hamilton Earnings Jobs Hamilton ($000) County Per Job County

Farm $34,315 0.4% $48,536 707 0.4%

Forestry, fishing, etc. $21,338 0.3% $116,601 183 0.1%

Mining $13,430 0.2% $37,099 362 0.2%

Utilities $151,068 1.8% $153,837 982 0.6%

Construction $540,549 6.6% $58,960 9,168 5.2%

Manufacturing $409,288 5.0% $69,336 5,903 3.4%

Wholesale Trade $645,609 7.9% $82,086 7,865 4.5%

Retail Trade $583,204 7.1% $30,964 18,835 10.8% Trans. and warehousing $79,119 1.0% $37,730 2,097 1.2%

Information $243,865 3.0% $62,933 3,875 2.2% Finance and insurance $1,082,835 13.2% $58,681 18,453 10.5% Real Estate and rental and leasing $290,882 3.5% $20,119 14,458 8.3% Professional, technical services $1,001,153 12.2% $62,737 15,958 9.1%

153 Sheridan Comprehensive Plan

Management of companies, enterprises $233,247 2.8% $102,662 2,272 1.3% Administrative and waste services $558,524 6.8% $40,514 13,786 7.9% Educational services $64,384 0.8% $18,106 3,556 2.0% Health care, social assistance $875,140 10.7% $51,160 17,106 9.8% Arts, entertainment, and recreation $75,952 0.9% $14,261 5,326 3.0% Accommodation and food services $242,363 3.0% $20,550 11,794 6.7% Other services, exc. public admin. $326,747 4.0% $35,687 9,156 5.2% Gov. and gov. enterprises $733,025 8.9% $54,986 13,331 7.6% Source: STATS Indiana; U.S. Bureau of Economic Analysis

154 Sheridan Comprehensive Plan 13 ______Commuting

Figure 4.15 shows the number of persons who live in Hamilton County but commute to another county or state for work, compared to the number of persons who commute in. In each of the years shown, there tends to be more than twice as many people commuting out of the county as there are commuting into it, which means that it is a net exporter of labor. According to the Indiana Department of Revenue (based on IT-40 tax returns), about a third of Hamilton County’s implied resident labor force—that is, th ose who live in Hamilton County and are employed—commutes outside the county for work. The vast majority of these commuters (50,518) work in Marion County. Others work primarily in Madison (1,496), Howard (1,235), and Boone (1,172) counties.

Commuters into Hamilton County come primarily from Marion County (12,479), though Madison (4,502), Boone (1,964), Hancock (1,691), and Hendricks (1,527) counties also contribute. Commuters from outside Hamilton County make up about 19 percent of the total number of people who work within the county.

Source: STATS Indiana

155 Sheridan Comprehensive Plan 13 ______Housing

Figure 4.16 shows the median, inflation-adjusted home values for both Indiana and Sheridan from 1990 to 2007-2011. Similar to household income, the median home values at the state and town levels spiked from 1990 to 2000 (rising by 58 percent in Sheridan) and declined from 2000 to 2007-2011 (falling by 15 percent). Despite this recent decline, it is still evident that the longer-term trend in home values—both in Sheridan and in Indiana—is upward. And there is good reason to believe that the housing market is already on the mend, as numerous media outlets, citing indicators such as the S&P / Case-Shiller U.S. National Home Price Index, began reporting during the summer of 2012 that home prices were once again rising, albeit at a slow rate.

Sources: U.S. Census Bureau (1990 & 2000); 2007-2011 American Community Survey *In 2012 dollars. Calculated using the Bureau of Labor Statistics’ CPI Inflation Calculator

As of the 2007-2011 ACS, there were 1,141 housing units in Sheridan. Figure 4.17 shows the percentage of these units that are owner-occupied, renter-occupied, and vacant. Sheridan departs slightly from statewide averages in having slightly lower vacancy and rental rates, and a five percent higher homeownership rate.

156 Sheridan Comprehensive Plan 13 ______

Source: U.S. Census Bureau, 2007-2011 American Community Survey

The National Low Income Housing Coalition (NLIHC) conducts research on affordable housing and, among other things, produces an annual report that estimates the cost of affordable housing by county throughout the U.S. Two useful statistics that the NLIHC’s report tracks are the Fair Market Rent and the Housing Wage. Briefly, the Fair Market Rent is defined as the 40th percentile of gross rents for “typical, non-substandard” rental units in a given area; the Housing Wage is defined as the hourly wage a household must earn to afford an apartment at Fair Market Rent while spending no more than 30% of its income on housing. Put another way, Fair Market Rent gives us a sense of how much a decent, affordable rental unit costs in a given area, while the Housing Wage tells us how much a household must earn to afford such a unit.

The Housing Wage in Indiana for a two-bedroom unit was $13.43 per hour in 2012. This amount, once again, is the wage a household must make per hour during a 40 hour work week to afford a two-bedroom unit at Fair Market Rent, which is $698 per month in Indiana. The Housing Wage in Hamilton County is $14.37, slightly higher than that of Indiana and nearly twice as high as the minimum wage ($7.25 per hour). Figure 4.18 shows the housing wages of selected areas in Indiana.

157 Sheridan Comprehensive Plan

Figure 4.18 Housing Wage for a Two-Bedroom (2012)

Indiana $13.43

Hamilton County $14.37

Indianapolis Metro Area $14.37

Bloomington $13.92

Lafayette $13.98

Kokomo $12.48

Terre Haute $11.85

Evansville $12.85

South Bend $13.75

Source: National Low Income Housing Coalition

158 Sheridan Comprehensive Plan 13 ______In Hamilton County, the median household income of $66,900 per year (in 2012 dollars) allows for a maximum monthly housing cost of up to $1,673, according to the NLIHC standards mentioned above. However, an extremely low-income household income, which is defined as a household earning 30% of the median income for a given county and as $20,070 for Hamilton County in particular, can afford only $502 per month for housing.

Put another way, the Fair Market Rent in Hamilton County is $747 per household per month for a two-bedroom unit. A single minimum wage earner, who in Indiana can only afford a rent of $377 per month, would need to work 79.26 hours per week to be able to afford a two-bedroom unit in Hamilton County; a household consisting of two minimum wage earners would just barely be able to afford a two-bedroom unit while each working a 40 hour week.

Another measure of housing growth is the number of building permits issued per year. As Figure 4.19 indicates, Hamilton County saw a rapid decline in the number of residential building permits issued per year from 2005 to 2010. This decline is consistent with the state- and nationwide patterns of declining growth in residential construction since the mid-2000s.

Figure 4.19 Hamilton County Residential Building Permits

2005 2006 2007 2008 2009 2010 2011 4,276 3,895 2,996 2,244 2,182 1,975 1,891 Source: STATS Indiana

159 Sheridan Comprehensive Plan 13 ______Hamilton County Comparisons

The following series of figures show how Sheridan compares to other Hamilton County towns and cities on a number of important demographic characteristics and how Hamilton County compares to other Indianapolis metropolitan counties. Figure 4.20 shows that although Sheridan has experienced modest growth since 1990, it has largely been overshadowed by the spectacular growth seen in cities like Fishers and Westfield. Incidentally, Arcadia and Atlanta each contracted by about five percent in the 2000s.

Source: STATS Indiana, Indiana Business Research Center

160 Sheridan Comprehensive Plan 13 ______Figure 4.21 shows the population growth rates in the past two decades for each of the counties surrounding the Indianapolis metropolitan area. As can be seen, Hamilton County has been the fastest growing county by a wide margin in the greater Indianapolis metropolitan region for the past 20 years.

Figure 4.21 Population Growth by County (1990-2010) 80.0%

70.0%

60.0%

67.7%

50.0%

40.0%

50.3%

30.0% 39.7%

37.5%

20.0%

30.8%

26.4%

10.0% 22.8% 21.7% 21.2% 20.9%

19.3% 7.8% 2.3% 3.3% 0.0%

% Change (1990-2000)

% Change (2000-2010)

Source: STATS Indiana

161 Sheridan Comprehensive Plan 13 ______Figures 22 and 23 show the median home values and median household incomes for the 2007- 2011 period for Hamilton County communities. In reviewing these two statistics in particular, it is important to keep in mind that places like Carmel, Westfield, Fishers, and Noblesville are exceptional compared to statewide statistics, and even in some cases nationwide statistics.

Figure 22. Hamilton County Median Home Value by Place*

100 ,

$291

400 , 300

500 , 300 $210 , 400 000 200 $201 , , , $169

$152 $100 $100 $100

*In 2011 dollars Source: U.S. Census Bureau; 2007-2011 American Community Survey

Figure 23. Median Household Income by Place*

071

347 054 ,

$106 ,

$92 484

$86 ,

071 217 , $70 , 921 , 091 , $56 $54 $50

$44

*In 2011 dollars Source: U.S. Census Bureau; 2007-2011 American Community Survey

162 Sheridan Comprehensive Plan 13 ______Finally, Figure 24 shows a comparison of educational attainment among Hamilton County towns and cities. Again, many of the communities in Hamilton County tend to be exceptional by state and national standards, particularly in terms of the portion of each place’s population with a bachelor’s degree or higher.

Figure 24. Hamilton County Educational Attainment by Place

.8% 98.2% 97.5%

96.5% 94.8% 90.0% 84.9% 84.3% 81 66.7% 9.2% 8.9% 24.4% 61.6% 46.4% 11.4% 53.2%

Arcadia Atlanta Carmel Cicero Fishers Noblesville Sheridan Westfield

Percent high school graduate or higher Percent bachelor's degree or higher

Source: U.S. Census Bureau; 2007-2011 American Community Survey

163 Sheridan Comprehensive Plan 13 ______Adams Township Comparisons

Adams Township encompasses more than 48 square miles and is located in the northwest corner of Hamilton County. According to the 2007-2011 ACS, Adams Township’s population is 4,922, which implies that just less than half of the township’s population resides outside of the Sheridan town limits.

Figure 25 compares the household income distributions of Sheridan and Adams Township. It is noteworthy that about 18 percent of Adams Township households earn $100,000 or more in a year, compared to only about eight percent of Sheridan households. Moreover, the township median household income of $57,323 per year is about 10 percent higher than the median income in Sheridan. These figures point to the fact that more high earners in Adams Township reside outside of Sheridan.

Figure 25. Household Income

24.9%

21.9%

17.3%

16.4%

16.1% 15.1%

14.0% 12.6% 12.0% 10.1% 3.9% 2.8% 6.8% 7.1% 7.7% 6.3% 1.6% 0.9% 0.5% 1.9% Less than $10,000 $15,000 $25,000 $35,000 $50,000 $75,000 $100,000 $150,000 $200,000 $10,000 to to to to to to to to or more $14,999 $24,999 $34,999 $49,999 $74,999 $99,999 $149,999 $199,999

Sheridan Adams Township

Source: 2007-2011 American Community Survey

164 Sheridan Comprehensive Plan 13 ______Figure 26 compares the levels of educational attainment in Sheridan and Adams Township. While the distributions look very similar, a marked difference between the two is that a typical Adams Township resident is more likely to have completed high school and is somewhat more likely to have a graduate or professional degree than a typical Sheridan resident.

Figure 26. Educational Attainment

37.7% 37.2%

27.1% 27.0%

12.6% 6.3% 7.3% 9.6% 9.8% 1.7% 5.5% 5.6% 2.8% 9.8%

Less than 9th 9th to 12th High school Some college, Associate's Bachelor's Graduate or grade grade, no graduate no degree degree degree professional diploma (includes degree equivalency)

Sheridan Adams Township

Source: 2007-2011 American Community Survey

165 Sheridan Comprehensive Plan 13 ______Finally, Figure 27 compares the distributions of home values in Sheridan and Adams Township. As with the other indicators considered, Adams Township as a whole is in a considerably better position than Sheridan. More than a fifth of Adams Township homes are valued at more than $150,000, compared to just over 14 percent in Sheridan, and the township median home value of $134, 425 (in 2012 dollars) is nearly 30 percent greater than the Sheridan median.

Figure 27. Home Values

37.7% 35.7% 35.6%

20.2%

18.0% .1%

12.7% 12 8.7% 11.1% 3.4% 0.0% 0.9% 0.0% 3.9% 0.0% 0.0% Less than $50,000 to $100,000 to $150,000 to $200,000 to $300,000 to $500,000 to $1,000,000 $50,000 $99,999 $149,999 $199,999 $299,999 $499,999 $999,999 or more

Sheridan Adams Township

Source: 2007-2011 American Community Survey

166 Sheridan Comprehensive Plan

STEERING COMMITTEE MEETING # 1 SUMMARY

Town of Sheridan Comprehensive Plan  January 23, 2013  Town Hall

Attendees: Name Position Email Phone Brenda Bush Council Member [email protected] 317-758-5845 Tom Cain Building Commissioner [email protected] 317-258-5293 Parvin Gillim Chamber of Commerce [email protected] 317-697-6722 Tina Grant Administrator [email protected] 317-984-8639 Henderson Ron Stone Community Member [email protected] 317-758-5170 Craig Wallace Economic Development Comm. [email protected] 317-695-2853 President

Consultants: Scott Burgins (SDG), Cory Daly (HWC), Rex Dillinger (HWC), and Catie Kosinski (SDG)

I. Introduction Scott Burgins, Project Manager at Strategic Development Group, welcomed everyone to the first steering committee meeting for the Sheridan Comprehensive Plan. He said the community is off to a good start and that this CFF planning grant from OCRA sets the town up for future construction grants. Planning grants are typically for 12 months, but we hope to have a draft ready in 7-9 months which will allow ample time for the approval process. The plan commission will need to approve the comprehensive plan before the town council. Scott asked each steering committee member to give a brief introduction.

Craig Wallace is a new town council member and president of the economic development commission. He is the fourth generation in the family to run a grain business that produces mostly horse feed. He lives just outside of the Sheridan town limits in Washington Township. He said he looks forward to working with the town council to shape the direction of the town’s future.

Brenda Bush is a town council member. She previously worked at the Indiana Department of Commerce and has experience with planning and resource development. She currently works as the Renewal Specialist for the Sheridan Historical Society and worked on the restoration of Boxley Cabin. She raised money for the OCRA grant match funds and said that Sheridan has many opportunities for partnerships and regionalization. The town’s annual Blue Grass Fever event has a growing out-of-town audience and 2 Grammy award winning groups performing later this year. In addition, Sheridan has already had a great turnout at Sharon Canaday’s visioning process in late 2012; an estimated 80 people participated in the visioning exercise in December. Brenda hopes that this plan starts people looking at Sheridan in a different way.

1 167 Sheridan Comprehensive Plan

Ron Stone is a lifelong Sheridan resident who is retired from working as a teacher and in education administration. He is president of the Sheridan Historical Society and on the Alumni Association.

Tom Cain is Sheridan’s Building Commissioner.

Parvin Gillim is a member of Sheridan’s Chamber of Commerce and owner of Main Architects, which has its office in town. He said he was drawn to Sheridan because of it was a small town with an airport nearby. His home is close to the airport.

II. Completed Meeting summaries, draft reports, and other project information will be posted on the project website: http://www.sdg.us/sheridan-comprehensive-plan/.

III. To Do At the meeting, Brenda provided hard copies of several previous plans for Sheridan. The consultants still need to schedule a tour of the town.

IV. Fundamentals of a Comp Plan Scott briefly discussed the fundamentals of a comprehensive plan. He said that we’ll be looking for ideas right off the bat. The plan will look ahead 20 years, but we like to get things started now. In essence, a community’s comp plan answers the questions what do you want to change and what do you want to protect. Our team – SDG and HWC – specialize in realistic solutions to everyday problems. The comprehensive plan will not be legally binding like the zoning code, but it can recommend changes to the zoning code. As the planning process continues we will want to widen the group of stakeholders.

Scott asked the steering committee members to share any concerns they have about the comprehensive plan. The group’s concerns are included below:

 The planning group is small.  We need more public participation.  We need to attract younger people to participate in the process.  The plan needs to be flexible enough to change over 20 years.  Sheridan is on the brink of change and growth.  We should include someone from Adams Township on the steering committee.  There are some naysayers in town who think you’re wasting your time and would prefer no planning.  There are always people who are okay with the status quo.  Some people may get resentful of community changes that force them to change.  We need to show that planning allows for greater local control.  Either we change, or are forced to change or die.

2 168 Sheridan Comprehensive Plan

The steering committee members also shared their hopes for the planning process which included:

 Continue the dialogue to integrate the different interest “pods” of Sheridan. These include the historical pod, commercial/industrial pod, and the SR 38 and SR47 intersection pod.  Determine the feasibility for cultural center study.  Promote the community’s infrastructure such as the nearby airport.  Right now people have to commute to work, but there could be more job opportunities in Sheridan.  Identify 3 projects for Sheridan to use on an application for a Stellar Communities grant in the future.

V. Review Public Survey Draft Scott reviewed the draft public survey and explained that this template aims to be broad in scope. The survey will be posted online and print copies made available for distribution through town. Sometimes communities want to know something more specific through the survey. Cory Daly added that handing these out to people and personally inviting them to meetings improves planning participation.

Scott said that we can target certain populations such as young people or professionals in focus groups. Brenda explained that Sheridan recently completed a visioning process with Sharon Canaday of Ball State University. The results of the visioning process will be available soon. Scott said that there was no need to do the visioning exercise planned for this meeting.

In light of the town’s recent visioning exercise, the steering committee may want to shorten and target survey questions based on projects as they develop. We can make sure that the survey uses words that community members will understand.

VI. Review Demographic Profile Catie Kosinski reviewed the draft demographic profile of Sheridan with the steering committee. She explained that such reports can never provide a complete picture of a community, but it is how many outsiders see Sheridan. When businesses scout out new locations or potential residents consider where to move, statistical data often provides the first glimpse of a community for better or worse.

Overall, Sheridan’s statistical indicators are mostly positive, especially when compared with other Indiana communities. Sheridan’s population grew 16 percent between 1920 and 1990, but it’s grown by 30 percent since 1990. Hamilton County is expected to grow nearly 7 times father than the state by 2050, so Sheridan can expect to feel more growth pressures. In addition, Sheridan’s population is aging. The town has a higher proportion of individuals that are retirement aged than the state.

Recent data from the Indiana Department of Education show a slightly declining school enrollment for Sheridan Community Schools. However, this could be due to the increasing number of charter schools.

3 169 Sheridan Comprehensive Plan

Estimates of educational attainment levels in Sheridan suggest that the town has a lower proportion of adults (25+) with Associate’s degrees or higher. The steering committee expressed interest in knowing the educational attainment in Adams Township since many professionals live outside of the town’s corporate limits. The local school corporation was viewed as an asset for the community. The demographic profile will be revised to show township data, especially with regards to educational attainment, employment and income.

Although Sheridan’s poverty rates are lower than the state average, they are higher than in Hamilton County overall. Steering committee members expressed concern at the high percent (29%) of students receiving free lunches, which is another measure of relative poverty. Brenda provided some statistics about Sheridan being economically distressed especially with regard to school-age children. We will review these and revised the demographic profile as needed.

VII. Critical Sub Areas Cory Daly, of HWC Engineering, led the steering committee through a discussion of critical sub areas in and around Sheridan. These are neighborhoods and intersections that may need more attention in the new comprehensive plan. The following bulleted items were discussed as possible critical sub areas in Sheridan:

 Businesses and industrial park on the west side of town  Sheridan’s most vibrant commercial area is Main Street o Protect Main Street’s ambiance o Restaurants have already started to migrate out of the downtown core (i.e. Red Onion and Stewart’s) o Downtown has lost its “foodie” status  Monon corridor o Right-of-way was sold to an individual and reverted back to property owner o Spicewood Gardens is a retirement community along the Monon corridor o Improve visibility and parking o Monon Trail from Sheridan to Westfield is in progress o Hamilton County parks department is trying to buy the right-of-way of the trail through Sheridan  Maple Run neighborhood still has approximately 130 lots available with 120 lots finished  Lomong Road connector o Provide access to get around Sheridan  Emphasize Sheridan’s agribusiness sector o Potential for equine riding trail around the town in the township o There are boarding stables and training stables just outside of Sheridan’s town limits o Watering and feeding stations along a trail  Drainage is a problem in town o The town experienced severe floods in 2011

4 170 Sheridan Comprehensive Plan

o The Krause Drain is in need of repair o Discussion of creating a 20 acre retention pond  Discuss possibility of merging with Adams Township o County and town zoning ordinances are more in alignment now o Discuss tax rate issues  Regional efforts o Northern tier of Hamilton County is an emerging market o Reynold’s, a major employer in Sheridan, is moving operations to along SR 31  Transportation improvements o County looked at widening old SR 47

Sheridan is the first community in Hamilton County to have an industrial park with shovel-ready designation. With the current economic climate, people are more willing to cooperate. The plan wants to build on this intergovernmental cooperation and continue building trust.

VIII. What’s Next Steering Committee Meeting #2: Wednesday, February 20th at 10:30 am

5 171 Sheridan Comprehensive Plan STEERING COMMITTEE MEETING # 2 SUMMARY

Town of Sheridan Comprehensive Plan  February 20, 2013  Town Hall

Consultants: Scott Burgins (SDG), Cory Whitesell (HWC), and Catie Kosinski (SDG)

I. Updates Since the first steering committee meeting, Sheridan has discovered some drainage issues and is meeting with Banning Engineering about possible solutions. Tom Cain explained that the town is considering two options – one that costs $4.3 million and another that is $800,000 for the county to regulate drainage. The town is working closely with Hamilton County Commissioner Mark Heirbrandt who also serves on the sewer board.

Tom explained that the town also found sanitary sewer problems. Problems have been discovered with old combination sewers behind the Daily Grind and along other Main Street businesses. An 8” storm sewer has collapsed. The town completed a study of sewer and water issues four years ago. Currently, sewer and surface water are connected and they should not be. Cory Whitesell, an engineer at HWC, said that many communities are struggling with failed combined sewer systems. The town does not have a capital improvement plan. Unresolved sewer and water infrastructure problems limit the town’s capacity for growth.

Another development is the proposition to relocate Hamilton County 4-H from Noblesville to an area east of Biddle Memorial Park near Sheridan. This area would complement 4-H activities. Land values in Noblesville are high and prime for business expansion. Sheridan supports the idea of 4-H relocating nearby.

Since the last meeting, Brenda Bush met with Dax Norton, the new director of OCRA, to discuss opportunities for Sheridan’s future development. One possibility is using TIF for the Main Street district. The town’s existing Redevelopment Commission is not very active, and the town is running out of manpower. Brenda has asked the town’s attorney if the Economic Development Commission can also serve as the Redevelopment Commission. One hurdle to this potential revenue stream is that the town needs a prospect to create a TIF district.

172 Sheridan Comprehensive Plan Sheridan’s downtown is in immediate need of assistance. The town’s high water table has created flooding problems in historic buildings that are now fighting rotted joists. This is a costly problem for many property owners to fix even with the assistance of façade enhancement grants. Many historic buildings are at a critical stage and may be lost without immediate intervention.

II. Revised Demographic Profile Catie Kosinski reviewed some additional demographic comparisons between Sheridan and other Hamilton County communities and Adams Township. Sheridan’s population growth since 1990 has been overshadowed by the spectacular growth seen in other cities like Fishers and Westfield. Median home values and household incomes in Carmel, Westfield, and Fishers have been exceptional compared to statewide statistics. The median household income in Adams Township is about 10 percent higher than in Sheridan. Education attainment levels are higher in Adams Township than in Sheridan especially with regard to graduate or professional degrees. Similarly, home values in Adams Township tend to be higher than in Sheridan.

Right now Sheridan is the only incorporated community in Adams Township, but Westfield is inching closer. People do not like to hear the word annexation because of taxes, but other communities have annexed township areas without raising taxes. For instance, Zionsville annexed two townships that continued to pay township rates. Sheridan updated its zoning ordinances a few years ago to align them with the county’s ordinances. This comprehensive plan may want to explore the possibility of a merger between Sheridan and Adams Township.

III. Mapping Exercise Cory led the steering committee through an exercise to develop some land use priorities.

The first part of the exercise asked people to indicate on a map the most unattractive place in Sheridan. Their answers are included below: • Lamong Road: o The road does not connect as intended. o Sheridan owns the right-of-way but the county designed this as a two-lane road with a median. o It could potentially serve as a major artery in the north part of Hamilton County. o The county rezoned the area through there to commercial. The potential for development is high. o Some stakeholders are meeting on March 8 to discuss creating a marketing group to represent the northern tier of Hamilton County. • Housing on the west side of Sheridan looks rundown. • The west entrance into Sheridan heading east on S.R. 47 needs to be improved. • The intersection of S.R. 47 and Main Street needs to be more defined.

173 Sheridan Comprehensive Plan The second part of the exercise asked the steering committee to indicate on a map the most attractive place in Sheridan. Their answers are included below: • The farmland north of town could be a park. • All of the town’s parks are nice. • The potential of a 40-acre lake would address drainage and improve the community’s livability. • Potential for 4-H grounds to be relocated near Biddle Memorial Park. • Potential for golf course in lands south of town. • New venues for the bluegrass festival.

Finally, steering committee members were asked to share what places they consider to have the greatest potential as future opportunity areas. Their answers are included below: • Complete the Monon Trail through town. The county is buying the right-of-way. • Adding designated horse-friendly trails and paths around the town. • Corporate land available near potential lake front. • Hamilton County Conference Center in old Sheridan High School. • Grand Park is 2.5 miles south of Sheridan and could potentially bring hotels to the area.

In conclusion, Sheridan has an obvious niche for recreation and trails with its many community parks. Sheridan offers a small town alternative to Westfield but can take advantage of growth nearby.

IV. Vision & Development Principles Sheridan completed a community-wide visioning exercise in 2012. The comprehensive plan can expand that vision with specific, bold statements for future development. These development principles provide guidance to decision-makers about land use issues.

For example, the community can have a development principle about public investment. In nearly all cases, public investment precedes private investment; the free market alone will not provide the type of development consistent with the town’s vision. Scott noted that the town needs a capital improvement plan. Brenda explained that the community is debt-averse and prefers common sense to manage obligations sensibly. Development is a community asset so it is reasonable for the town to have development standards to guide community growth. One possible development principle may be: Averse to debt, the town recognizes the need to make public investments to trigger private investments.

Tom said that parking downtown is a problem during the day. Enforcing two-hour parking on Main Street is an option. Another solution is public education about parking. People who live above stores could be required to park behind their buildings.

Parvin Gillim suggested that the town designate neighborhood areas to create a sense of identity. This might encourage people to take more pride in maintaining the condition of their neighborhoods and homes.

174 Sheridan Comprehensive Plan V. Public Input The town has received several forms from people interested in volunteering in the planning process. We will use this list as the basis for inviting people to focus groups. In addition, we will hold a public forum so that the entire community feels welcome to participate in the process.

VI. What’s Next Focus Groups: Wednesday, March 13th at Town Hall • 4 pm – Housing/Neighborhoods • 5 pm – Economic Development/Downtown • 6 pm – Public Facilities/Parks • 7 pm – Transportation/Infrastructure Steering Committee Meeting #3: Wednesday, April 10th at 3:30 pm at Town Hall Public Forum: Wednesday, April 10th at Sheridan Public Library

175 Sheridan Comprehensive Plan STEERING COMMITTEE MEETING # 3 SUMMARY

Town of Sheridan Comprehensive Plan  April 10, 2013  Town Hall

Attendees: Name Position Email Phone Brenda Bush Town Council Member [email protected] 317-758-5845 Tom Cain Building Commissioner [email protected] 317-258-5293 Parvin Gillim Chamber of Commerce [email protected] 317-697-6722 David Kinkead Town Council President [email protected] 317-519-3722 Ron Stone Community Member [email protected] 317-758-5170 Craig Wallace Economic Development Commissioner [email protected] 317-758-4434

Consultants: Scott Burgins (SDG), Rex Dillinger (HWC), Cory Whitesell (HWC), and Catie Kosinski (SDG)

I. Updates  Steering committee meeting #2 summary posted online  Focus groups held  A distillery may be coming to town

II. Summary of Focus Groups Catie reviewed the notes from the four focus groups held on March 13, 2013 at Sheridan Town Hall.

Sheridan’s median home values were discussed during the Housing/Neighborhoods focus group. More recent figures place the town’s median home value much lower than census estimates from the American Community Survey, which averages five years of historical data. An Open Market Analysis for the last 12 months in Sheridan show that the average price of homes sold is $67,000.

The steering committee suggested that the following changes be made to the Public Facilities/Parks summary: Sheridan does not own the Monon Trail right-of-way through town.

The committee members noted that Adams Township is the only township in Hamilton County without a county park or facility.

The comprehensive plan will explore funding opportunities for creating a master park plan. The Sheridan Town Council manages Sheridan Community Park and Veterans Park and does not have a separate park board. Biddle Memorial Park is managed by a private board, but the Town of Sheridan owns the park land. Cory noted that Indiana DNR provides a master park plan example for “anytown” that local municipalities and park boards can use as a guide. See http://www.in.gov/dnr/outdoor/2603.htm for more information on park planning.

1 176 Sheridan Comprehensive Plan III. Exercise: Plan Priorities Scott noted that several problems have arisen in Sheridan during the planning process, including expensive infrastructure work. Rather than let these issues bog down the plan, Scott wants to keep the ball rolling with small successes that can be achieved at little to no cost.

The comprehensive plan will include a recommendation to create a Capital Improvement Plan (CIP) for the town, which will give the community a tool to address problems over time.

Prioritizing Sheridan’s projects is the first step in focusing comprehensive plan efforts and forming a CIP. Cory led the steering committee through an exercise to distinguish projects as either Must Dos, Can Dos, or Should Dos.

Must Dos: Issues/projects that need to be addressed, either because they are emergencies or because they are an impediment to progress  Sidewalk extension between Veteran’s Park to the school  William Krause Drain Improvements o Have to get water out of town  Address drainage problems/40-acre detention pond (“lake”)  Public safety o “sometimes we have to turn left before we turn right”  West Road closure due to drainage problem o Need to get rid of the water o Goes along side of the east side of the industrial park o Economic development issue  Annex north side of SR 47 corridor commercial expansion

Can Dos: Issues/projects that can be addressed now with minimal investment but may require political will  Code enforcement o Requires political will o Money for court cases o Building commissioner cannot issue tickets . This could be changed o Potential for community collaboration  Community Center upgrades and renovation o Wiring issues are being addressed o New windows were put in three years ago o More renovations and capital investments are needed o Needs roof work o Parking lot also needs improving o Cost of estimated work: $25,000 – $50,000

2 177 Sheridan Comprehensive Plan o Adaptive reuse plan – could turn into municipal center  Explore/established design/historic standards  Housing and neighborhood revitalization o Can go along with code enforcement  Biddle park expansion (brownfield) o Town already owns the property  4-H development next to Biddle Memorial Park o Sensitive politically o Need to have conversations with county and Noblesville  Ashland brownfield o Doing brownfields assessment in collaboration with Noblesville o Possible location for golf course  Industrial Park promotion o Waiting on state (IEDC to OCRA) and Duke Energy

Should Dos: Opportunities that Sheridan may be able to take advantage of that may require investment  Veteran’s Park Expansion o Events possibility/land availability makes easier  Housing Development North of Veteran’s Park o Tied to park expansion o Opportunity to work with a developer  Lamong Road extension o Tied with drainage solution o Could happen at same time if county helps  Historic District/Main Street Revitalization o Explore plan to preserve downtown  SR 47 Corridor Improvements/cleanup  SR 47/SR 38 community gateways  Main Street/SR 47 gateway/roundabout  Monon Trail Expansion  Monon Trail Gap Completion o Tie in with developers  Sheridan PR/promotional campaign o Hinges on other improvements

The steering committee did not finish this exercise before it dismissed to prepare for the public forum. Scott assigned the committee to review the rest of the list before the next meeting.

IV. Review Draft Chapter The meeting packet included the Community Character draft chapter for review. However, the meeting adjourned before the draft was discussed.

3 178 Sheridan Comprehensive Plan

V. What’s Next Steering Committee Meeting #4: Thursday, May 9th at 3:30 pm at Town Hall

4 179 Sheridan Comprehensive Plan STEERING COMMITTEE MEETING #4 SUMMARY Town of Sheridan Comprehensive Plan • May 9th, 2013

Attendees: Name Position Email Phone Brenda Bush Town Council Member [email protected] 317-758-5845 Parvin Gillim Chamber of Commerce [email protected] 317-697-6722 Tom Cain Building Commissioner [email protected] 317-258-5293 David Kinkead Town Council President [email protected] 317-519-3722 Ron Stone Community Member [email protected] 317-758-5170 Consultants: Scott Burgins (SDG), Cory Daly (HWC), Rex Dillinger (HWC), and Claire Linnemeier (SDG)

I. Updates • Public Meeting notes posted online, held public meeting. • Bluegrass Festival and Harvest Moon Festival coming up.

II. Exercise : Plan Priorities Cory Daly introduced part two of the “Can Do, Must Do & Should Do” exercise. Committee members stated that the town is considering appraising some land for a lake as a possible solution to their drainage problem.

To begin, the committee members brought up some basic ideas on what can be done. Some ideas were a stronger code enforcement, neighborhood revitalization, clean up and community action days, expansion of parks and 4H development.

Next, the committee referred to the list of problems in Sheridan and went through the exercise.

• Must Dos: Issues/projects that need to be addressed, either because they are emergencies or because they are an impediment to progress. o 5-Year Parks and Recreation Master Plan o Housing improvements maintenance/homeowners assistance program o Small business/main street business incentives o Rental property upkeep/code enforcement o Sidewalk improvement . Safe Routes to Schools o Drainage Problems o Local road upgrades/improvements • Can Dos: Issues/projects that can be addressed now with minimal investment but may require logistics and political will. o Senior housing development expansion o Design/development

180 Sheridan Comprehensive Plan • Should Dos: Opportunities that Sheridan may be able to take advantage of that may require investment. o Bluegrass Fever Festival promotion & growth (with Harvest Moon Festival) o SR47/SR38 intersection improvement o Sheridan schools improvement o Mental/physical health issues o Main Street upper floor housing (in time) o Agricultural land preservation o Improve gateways

III. Review Draft Chapters The committee members and consultants briefly reviewed the “Community Character” and the public survey results. Scott Burgins asked that if the members saw any issues with the content in the chapters to contact him directly.

IV. What’s Next Committee members and consultants agreed to meet sometime in the following month.

181 Sheridan Comprehensive Plan STEERING COMMITTEE MEETING # 5 AGENDA Town of Sheridan Comprehensive Plan • August 20th, 2013

Attendees: Name Position Email Phone Brenda Bush Town Council Member [email protected] 317-758-5845 Ron Stone Community Member [email protected] 317-758-5170 David Kinkead Town Council President [email protected] 317-519-3722 Cory Daly HWC-consultant [email protected] N/A Parvin Gillim Chamber of Commerce [email protected] 317-697-6722 Craig Wallace Economic Development [email protected] 317-695-2853 Commission President

I. Review: Draft Chapters • Community Character • Economic Development • Housing o Formal relationship with HAND as housing Authority o Oak housing North of Sheridan . AL7 • Natural resources o Body of water – higher end housing? o Watershed in between two resources o Soil not conducive to drainage; but great for farming o Wetlandspossible cultural resources-bad for development . Not parks & recreation department . Hamilton County Parks – Invest o Westfield – Embellished Fields . Grant filed –WARM up diamonds • Transportation o 47 – county upgrading it up to 31 – widening o SR 47 – INDOT roadway o West Road  “Ally” property owners very narrow

II. Review: Opportunities List • Must Do o William Krause Drain . On the table – 5 year plan this Fall through Curryville o 40 – Acre Retention Pond . FOLLOW UP o West road Drainage . County, then town maintenance, Articulate Argument

182 Sheridan Comprehensive Plan o Launch Maintenance/ Homeowners Program . HAND, Time . Pilot Program (targeted areas) . Neighborhood (mix) South end of Main – (7th to 10th) o West road Economic Development Opportunities . (industrial Park) . Do we need a sign? YES! . UJLI; the State . (Tim Monger) county • Can Do • Should Do

III. Exercise Simple CIP • Simple CID - SB

IV. Discussion: Land Use Chapter • Annexation of Adams township • Code Enforcement

V. What’s Next • Sept. 24: Steering Committee meeting 6 (review final document) • Nov. 7: Special meeting of the plan commission & public hearing • Nov. 22: Present to the town council for adoption • Nov. 30: Deadline to submit to OCRA

Contact Information o Scott Burgins, SDG, 800-939-2449, [email protected] o Cory Daly, Hwc, 317-347-3663, [email protected] o Rex Dillinger, HWC, [email protected] o Claire Linnemeier, SDG, 800-939-2449, [email protected] o Website: http://www.sdg.us/sheridan-comprehensive-plan/

183 Sheridan Comprehensive Plan 184 Sheridan Comprehensive Plan STEERING COMMITTEE MEETING # 6 AGENDA Town of Sheridan Comprehensive Plan  Sept. 10, 2013

I. Land Use: • Questions for Westfield o Where do they see residential growth? 3 years? 10 years? o Where are they extending infrastructure? o What about road repairs or extensions? o Area with lake? o What are their annexation plans? o What will land closer to Sheridan be zoned?

• Any zoning changes required by opportunities? • Chapter notes

II. Review: Simple CIP

III. What’s Next . Nov. 7: Plan commission & public hearing . Nov. 14: Present to the town council for adoption . Nov. 29: Deadline to submit to OCRA

Contact Information o Scott Burgins, SDG, 800-939-2449, [email protected] o Cory Daly, HWC, 317-347-3663, [email protected] o Rex Dillinger, HWC, [email protected] o Claire Linnemeier, SDG, 800-939-2449, [email protected] o Website: http://www.sdg.us/sheridan-comprehensive-plan/

185 Sheridan Comprehensive Plan Land Use Notes

The Message Growth is coming. Let’s fix our main infrastructure issues with a planned, realistic Simple CIP. Let’s build our capacity to do more in the future. Let’s prepare for what people will want: • Nice homes • Nice neighborhoods • Nice downtown

Planning Jurisdiction The town controls the 2-mile fringe for planning.

There was never a referendum on annexing Adams Township. Many years ago, a former plan commission turned down an opportunity to provide planning for Adams Township.

Likely Areas for Growth Residential growth is most likely to the north or east.

About 480 acres on the east side has been zoned PUD for residential growth. Developers have plans for the property but it will need another water tower and sewer upgrade to accommodate large-scale growth.

186 Sheridan Comprehensive Plan April 10, 2013 Public Meeting #1: Land Use Exercise Results Summary Town of Sheridan Comprehensive Plan  May 9, 2013

Attendees at the April 10, 2013 Comprehensive Plan Public meeting were divided into three groups and asked to participate in a visioning exercise which will help the Steering Committee and the Consulting Team develop a greater understanding of the existing conditions and public opinion of the Town. For the exercise, each participant was given a map depicting an aerial photo and the major transportation features of the town. Each group was asked to consider and mark/circle the areas of town representing the following characteristics:

• The area of Sheridan that the individual thought was currently most ATTRACTIVE, • The area of Sheridan that the individual thought was currently most UNATTRACTIVE, • The area of Sheridan that the individual thought currently has the most FUTURE OPPORTUNITY.

Each person was given a few minutes to mark these areas on their maps and then share their thoughts/ideas with the group. The facilitator for each group kept notes and marked areas on a large map. The combined results of this exercise are summarized below.

Attractive Areas . Biddle Park – The setting, scenery, and activities (x 2) . Veteran's Park – The setting and the landscape . Sense of Community kindness . Spicewood gardens . Downtown/Main Street – historic character and recent improvement efforts (x4) . Architectural history of Main Street – The Historic character . The existing neighborhood past the Elementary School . The new library – includes the new building and the portion of Town surrounding the Library and Veteran’s Park (x3) . The School campus – in general all of Sheridan’s school campuses were viewed as attractive (x2) . Maple Run subdivision . New west neighborhoods

Unattractive Areas . Main Street – Buildings in need of repair, road condition (x2) . Main street – Condition of the road . Appearance of gateways/entrances into Town, all major intersections (individual intersections also noted below) . SR 38 and 10th St. intersection . SR 38 corridor from west . SR 38 and Main St intersection . SR 38 and Hamilton intersection . SR 38 and SR 47 intersection . SR 47 corridor (appearance of commercial, residential, trash, etc.) (x4) . SR 47 across from West neighborhood, appearance of the entire area . SR 47 and Hamilton . Appearance of neighborhoods/housing in general . Neighborhood area around Sheridan and 7th

187 Sheridan Comprehensive Plan . Sheridan Estates neighborhood . Mobile home park at SR 47 and Park . Old Adams Elementary School site . Area from Cora - 9th and Main - Georgia

Areas of Future Opportunity . Lamong Road extension (x2) . intersection improvements at Lamong Road & SR 38 and Lamong Road & 10th St. (x2) . Main Street commercial/economic development and facades (x2) . Land north of Veteran's Park . 2nd Street and Hamilton intersection . New/improved commercial development at SR 47 and Arrow . Proposed detention project/40 acre lake . Biddle park - maximize woodlands . Maple Run expansion - more businesses/restaurants . SR 47 to Main Street corridor . Monon Trail expansion - continue northwest and south to Westfield (x2) . Community history/history tourism - underground railroad . High speed internet & high tech infrastructure expansion . Industrial park promotion/expansion . Land availability for development . Garden club . Farmer's market – move location to Community Park . Land behind library . Main St. and 6th St. . East and west gateways . SR47 and California

188 Sheridan Comprehensive Plan Town of Sheridan Comprehensive Plan Public Forum

Wednesday April 10 6-8 PM Sheridan Public Library Share your priorities for Sheridan’s future!

Contact: Catie Kosinski at [email protected] or 800-939-2449 or 189 Sheridan Comprehensive Plan Brenda Bush at [email protected] or 317-758-5845 190 Sheridan Comprehensive Plan 191 Sheridan Comprehensive Plan 192 Sheridan Comprehensive Plan 193 Sheridan Comprehensive Plan 194 Sheridan Comprehensive Plan APPENDIX: FUNDING SOURCES 13 ______Funding Sources A list of potential funding sources for implementing the Sheridan Comprehensive Plan is shown below.

ADMINISTERED FUNDING TYPE FINANCING WHO QUALIFIES FUNDING TO BE USED FOR BY:

Planning/design/constructio

n of Treatment plant low-interest improvements W ater line (2.7-3.95%) Incorporated extensions W ater storage loans, 20-year cities/towns, facilities W etland protection term Note: An counties, and restoration; On-site additional .50% sanitary/conservatio sewage disposal; BMP for State reduction may Indiana n or regional ag & stormwater; Riparian Revolving Loan be permitted if Finance sewer/water districts Buffers & Conservation; Fund (SRF) a non-point- Authority SRF Private & Not-for- Wellhead Protection source project profit facilities are Planning/design/constructio is financed eligible only for n of Treatment plant along with a DW SRF loans improvements Sewer line point source extensions to unsewered project. Combined sewer overflow corrections

low-interest; 10-year term Any project addressing up to Indiana existing pollution Small Issue $150,000; SRF-eligible Finance abatement: W astewater, Loan Program reduced communities Authority Drinking W ater Non-point closing costs source no cost SRF PER review

Municipalities, Construction of Treatment political Facilities (Precipitate subdivisions, Process, Adsorption privately owned Processes, Ion Exchange Arsenic Indiana Community W ater Processes, Membrane Remediation Grant Program Finance Systems and non- Filtration, Point of Use Grant Program Authority profit Nontransient Devices) Planning & design Noncommunity Activities System Water System Must Consolidation System serve less than Restructuring 10,000 residents

195 Sheridan Comprehensive Plan APPENDIX: FUNDING SOURCES 13 ______

ADMINISTERED FUNDING TYPE FINANCING WHO QUALIFIES FUNDING TO BE USED FOR BY:

short-term Existing water or Serve rural areas Rural financing wastewater systems and that aren't located Community ($100,000) for the short-term costs Rural within the Assistance predevelopmen incurred for replacement Community boundaries of a Partnership t costs equipment, small-scale Assistance municipality with a Revolving Loan associated with extension of services, or population of 10,000 Fund proposed water other small capital projects or greater. & wastewater that aren't part of O&M.

Rural areas/towns with population

<10,000 including Grants up to municipalities, 75% of project Rural counties, special- Developing water and cost and loans US Dept. of Development purpose districts, waste disposal systems in 40yr term; Agriculture (RD) not-for-profit rural areas 4.25-4.5% corporations Lower interest income areas qualify for more grant assistance.

Rural areas/towns with population <10,000 including

municipalities, Grants for up counties, special- Rural to 75% of cost purpose districts, Development of planning or US Dept. of Water and W astewater not-for-profit Planning up to $15,000 Agriculture Infrastructure Planning corporations Must Grants 25% match be qualified for the required "poverty" bracket - 80% of the statewide nonmetro MHI

196 Sheridan Comprehensive Plan APPENDIX: FUNDING SOURCES 13 ______

ADMINISTERED FUNDING TYPE FINANCING WHO QUALIFIES FUNDING TO BE USED FOR BY:

Project must: (a) serve a rural area (b) serve one and

only one community recognized in latest

U.S. census; (c)

Deploy Basic Broadband Rural Broadband Grants Establish broadband Development Transmission minimum US Dept. of access to rural Community Service, free for 2 $50,000 (no Agriculture communities which are Connect Grant years to all Critical max) matching unserved Program Community funds required Facilities; (d) Offer Basic Broadband; (e) Provide a Community Center with at least 10 computer access points

Projects that contribute to Non-entitlement long-term community cities, towns or planning and development Grants up to counties Must Projects that will $600,000, either benefit areas Community Office of prevent/eliminate slums or minimum 10% at least 51%+ low- Focus Fund Community & blight, or projects that serve local match to moderate income (CFF) Rural Affairs a low to moderate income ($350,000 for OR eliminate slum population Often requires Fire Stations) or blight; cost per income survey to beneficiary may not determine low-income exceed 5000 eligibility

Planning activities for Non-entitlement projects that will cities, towns or prevent/eliminate slums or Grants up to counties Must blight, or projects that $50,000, either benefit areas Office of serve a low to moderate CFF Planning $30,000 (for at least 51%+ low- Community & income population. Grant single utility), to moderate income Rural Affairs Planning activities must be minimum 10% OR eliminate slum completed w/in 12 mos. local match or blight; cost per Often requires income beneficiary may not survey to determine low- exceed 5000 income eligibility

197 Sheridan Comprehensive Plan APPENDIX: FUNDING SOURCES 13 ______

ADMINISTERED FUNDING TYPE FINANCING WHO QUALIFIES FUNDING TO BE USED FOR BY:

Projects that lead to the Watershed IN Dept. of reduction and elimination of Grants 5% Projects Grant Environmental pollution, increase the local match (104(b)(3)) Management effectiveness of the NPDES program

Cities, towns, conservancy districts, special assessment districts, with

population under Flood Control IN Dept of 1,250 who have Projects that establish or Revolving Loans up to Natural been authorized to modernize water supply Fund: Rural $150,000 Resources maintain/operate the systems Water Supply system; entity is unable to borrow funds elsewhere; cannot exceed 2% of assessed valuation

Grants for up Counties, cities, Projects the will lead to job to 50% of towns, sewer Public W orks & creation and retention in project costs, Economic districts Sometimes Economic severely distressed 80% if severely Development townships and Adjustment communities including distressed; 20- Administration economic Grants water and wastewater 50% match development projects required corporations

City, Town, County, Special taxing

district, economic Construction of airports, development facilities, tourists Grants commission, attractions; sanitary sewer Industrial (typically Indiana nonprofit lines, storm sewers or Development $2,500 per job) Economic corporation, drainage; water; roads; Grant Fund Typically not Development corporation sidewalks; rail spurs and (IDGF) exceed 50% of Corp. established under sidings; information and cost IC 23-17, Regional high tech. infrastructure; water, sewage, or property; surveys solid waste district, Conservancy district

198 Sheridan Comprehensive Plan APPENDIX: FUNDING SOURCES 13 ______

ADMINISTERED FUNDING TYPE FINANCING WHO QUALIFIES FUNDING TO BE USED FOR BY:

Incorporated cities/towns, counties, Grants average water, wastewater, non- sanitary/conservatio Special award $2,000 point source and Congressional n or sewer/water Appropriations to $300,000 stormwater infrastructure Appropriation districts qualify for Projects (SAP) 45% local SRF, CDBG, USDA, RD SAP, also known as match required can be used as local match the State and Trial Assistance Grants (STAG)

Roadway must be on Federal Aid Federal Aid Federal System Group III Approx. $30M Transportation Cities & Towns available per INDOT Roadway improvements Aid to Local (<50,000, but above year 80/20 Communities 5,000) Group IV match Towns (<5,000 population)

Roadway must be on Federal Aid Federal Aid Safety improvements at System Group III Hazard Approx. $6M Intersections, signage, Cities & Towns Elimination and available per INDOT pavement markings, signal (<50,000, but above Safety (HES) year 90/10 modifications, lighting 5,000) Group IV match improvements Towns (<5,000 population)

199 Sheridan Comprehensive Plan APPENDIX: PUBLIC SURVEY RESULTS 13 ______PUBLIC SURVEY RESULTS

Sheridan Comprehensive Plan Update  May 9, 2013

53 submissions were collected for the Sheridan Comprehensive Plan Public Survey. The survey was made available both online and in print in March 2013. Printed surveys with return envelopes were available. The following analysis includes all 53 responses.

Key Findings:

• Of the top three priorities that need to be addressed in Sheridan, respondents stated that Economic Development was the #1 priority. • In terms of Economic Development, the biggest issue in Sheridan, as respondents have shown, is the need to Utilize Vacant Properties. • From the responses, the most serious Housing issue is the Need for Landlord Accountability in Sheridan followed by the current Condition of Older Neighborhoods. • Respondents indicated that the most serious problem in regards to Land Use in Sheridan is the Enforcement of Existing Regulations and Managing and Directing Growth. • The biggest problem with Transportation in Sheridan, as indicated by survey respondents is the current Curb and Sidewalk Conditions. Following that is the condition of Neighborhood roads around the community. • By a large majority, respondents voted that the most serious problem with utilities in Sheridan is the current Drainage and Flooding system. • Once again, in terms of Quality of Life, the most serious problem as cited by survey respondents was the current conditions of the city’s sidewalks.

200 Sheridan Comprehensive Plan APPENDIX: PUBLIC SURVEY RESULTS 13 ______

1. What about Sheridan would you most like to change? Answered Question: 48. 5 Skipped. Downtown/Buildings New businesses on Main Street – A small clothing shop, jewelry, like we used to have in the ‘60s. Enforce the Code, repair rundown buildings. Need to address rundown buildings, unfinished “Adams Elementary” renovation, damaged sidewalks, Main Street’s image (light post issue, planters and trees, rundown vacant storefronts) Sidewalks, Streets, and fix present Main Street. More businesses to come there. Nice to get more industry to help support town in economic downtimes. Develop a downtown commercial base which can provide all the weekly shopping needs. Land Use Lower utility bills – wastewater plant improvements so on big rains we can flush.

Update and improve infrastructure – sidewalks, drainage. People need to clean up their property – if there are codes about trash they need to be enforced. Clean up properties with trash and in poor repair. The appearance – it is very run down – people’s yards filled with cars, trash, etc. Quality of Life More family entertainment options, improved park systems. Clean up drug problems/surveillance. Accountability in all public service arenas. It needs to get cleaned up. Too much trash, brush, dead trees, broken garbage cans (always exposed). We look trashy. We need to take pride in our town starting from the youngsters. Get schools involved in clean up. I respect our law enforcement officers and thank them for keeping our town safe, but I’m tired of looking over my shoulder and being stopped for going a couple miles over the speed limit. Roads Update Main Street Hudson – Main on 38th. State Road 47 – 286th to S 31 Town streets need repaved. I would like to change the way Main Street looks. There are too many buildings that need new faces, the southern end of Main Street needs curbs and sidewalks and we need planters/flower pots on the corners. We need a more attractive entryway to Sheridan off of SR47. The signage directing people downtown is terrible! 47 also needs to be wider. Upgrade image along main corridors (38 & 47) and Main St. Facades need improvement. Economic Development See the town population support local business better. Increase upper-middle class housing. Reduce taxes. Bring in non-government funded business. Reduce number of churches. Reduce taxes. The perception that growth is required for revitalization to occur. More employment and better school system. Need more business and better sidewalks. More places to eat. Need a park on the West side of town.

201 Sheridan Comprehensive Plan APPENDIX: PUBLIC SURVEY RESULTS 13

I would like more business and employment here for our citizens.

Downtown/Buildings Parks and Historical buildings. Old architecture. Our older building along Main Street and other older structures and to keep the presence of our small town quality of life. I am not against industrial expansion, but we do not need Wal-Mart or huge department stores. Main Street, Boxley Cabin and Veterans Park. Parks and green space. Architecture of Main Street. The older and nicer homes and the streets and walkways. Land Use

Zoning projects, green space. Other/Schools The tradition of sports for the high school. The small town feel, our parks are nice, schools and school quality. Personal safety. Parks, church community, honor, traditional American values, safe neighborhoods. Small town atmosphere. Schools. Land values! The majority of this can be done by reducing taxes! Retired elderly on fixed income – may have been forced out of their homes by high taxes! Our dignity. Newspaper, old houses, small community. Adams Elementary Schools

3. Please rank your TOP THREE PRIORITIES to be addressed in Sheridan. Choose from the following list of issues and indicate which issue is (#1) Most Important, (#2) Very Important and (#3) Also Important.

Code Downtown Street and Water and Economic Neighborhood Quality of Traffic Coun enforce- revitalizatio sidewalk Sewer development revitalization Life issues t ment n repair Maintenance Priority 9.6% 15.4% 32.7% 1.9% 26.9% 0.0% 5.8% 52 #1 5.8% Priority 3.9% 17.6% 15.7% 21.6% 21.6% 3.9% 7.8% 51 #2 7.8% Priority 7.8% 11.8% 21.6% 25.5% 17.6% 0.0% 7.8% 51 #3 5.9%

202 Sheridan Comprehensive Plan APPENDIX: PUBLIC SURVEY RESULTS 13 ______4. How would you rate the following Economic Development issues? Answered question 164, Skipped 3

Serious Moderate Not a Response Uncertain Problem Problem Problem Count Available land for 7.5% 17.0% 60.4% 15.1% 53 industrial development Available land for commercial 5.7% 20.8% 56.6% 17.0% 53 development Appropriate infrastructure in growth 30.8% 38.5% 7.7% 23.1% 52 areas (water, sewer, etc.) Utilizing vacant 44.2% 34.6% 9.6% 11.5% 52 properties Adequate available space for smaller 3.8% 48.1% 42.3% 5.8% 52 businesses in retail, professional, etc. Need for tourism 25.0% 34.6% 19.2% 21.2% 52 marketing Need for workforce educational 19.2% 50.0% 9.6% 21.2% 52 opportunities

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5. How would you rate the following Housing issues? Answered Question 53, Skipped 0

Serious Moderate Not a Response Uncertain Problem Problem Problem Count

Condition of older neighborhoods 32.7% 65.4% 1.9% 0.0% 52

Condition of mobile home parks 40.4% 46.2% 1..9% 11.5% 52

Location of mobile home parks 33.3% 35.3% 23.5% 7.8% 51

Availability of single family homes 1.9% 23.1% 67.3% 7.7% 52

Availability of rental housing 7.7% 32.7% 42.3% 17.3% 52

Availability of housing for seniors 11.8% 35.3% 39.2% 13.7% 52

Availability of high-end housing 25.5% 27.5% 33.3% 13.7% 51

Availability of multi-unit housing 15.7% 39.2% 25.5% 19.6% 51

Location of residential development 5.7% 30.2% 50.9% 13.2% 53

Access to neighborhood parks 1.9% 17.0% 77.4% 3.8% 53

Need for landlord accountability 41.5% 34.0% 7.5% 17.0% 53

204 Sheridan Comprehensive Plan APPENDIX: PUBLIC SURVEY RESULTS 13 ______

6. How would you rate the following Land Use issues? Answered Question 162, Skipped 5 Serious Moderate Not a Response Uncertain Problem Problem Problem Count Managing and directing growth 29.4% 41.2% 31.7% 15.7% 51 Enforcing existing regulations 35.3% 29.4% 21.6% 13.7% 51 Controlling look of new 27.5% 35.3% 29.4% 7.8% 51 development Needing to merge town and 7.8% 23.5% 29.4% 39.2% 51 township governments

7. How would you rate the following Natural Resources issues? Answered Question 165, Skipped 2 Serious Moderate Not a Response Uncertain Problem Problem Problem Count Protecting wetlands 0.05 19.6% 56.9% 23.5% 51 Protecting lakes and streams 3.9% 21.6% 54.9% 19.6% 51 Protecting trees and greenery 8.0% 36.0% 36.0% 20.0% 50

8. How would you rate the following Transportation issues? Answered Question 166, Skipped 1 Serious Moderate Not a Response Uncertain Problem Problem Problem Count Bicycle / pedestrian trails 22.0% 46.0% 30.0% 2.0% 50 City road conditions 40.4% 40.4% 17.3% 1.9% 52 Traffic congestion 61.5% 30.8% 7.7% 0.0% 52 Curb and sidewalk conditions 0.0% 13.7% 86.3% 0.0% 51 Public transportation 65.4% 30.8% 3.8% 0.0% 52 Transit / regional connectivity 9.8% 29.4% 54.9% 5.9% 51 Truck traffic through 27.5% 33.3% 21.6% 17.6% 51 downtown

205 Sheridan Comprehensive Plan APPENDIX: PUBLIC SURVEY RESULTS 13 ______

9. How would you rate the following Utilities issues? Answered Question 53, Skipped 0 Serious Moderate Not a Response Uncertain Problem Problem Problem Count Sewage service 5.7% 24.5% 49.1% 20.8% 53 Water service 11.3% 20.8% 52.8% 15.1% 53 Broadband / telecom availability 32.1% 28.3% 28.3% 11.3% 53 Drainage and flooding 66.0% 20.8% 20.8% 9.4% 53

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10. How would you rate the following Quality of Life issues? Answered Question 53, Skipped 0 Serious Moderate Not a Response Uncertain Problem Problem Problem Count Need for new parks and 1.9% 22.6% 67.9% 7.5% 53 greenspace Need for walking/biking 17.3% 44.2% 30.8% 7.7% 52 trails Sidewalks 62.3% 32.1% 5.7% 0.0% 53 Need for more dining, shopping and 40.4% 44.2% 13.5% 1.9% 52 entertainment options Need to connect Monon Trail with neighboring 40.4% 32.7% 19.2% 7.7% 52 communities Need for Improved public 5.9% 15.7% 62.7% 15.7% 51 safety

207 Sheridan Comprehensive Plan

APPENDIX: PUBLIC SURVEY RESULTS 13 ______11. Other thoughts about land use planning? Response Count 29, skipped 24 Downtown We need to revitalize main street before trying to “build new.” Strip malls and housing developments are a dime a dozen and main street has potential and is irreplaceable. Only by offering quality and amenities to all will this town become attractive to outside sources. Keep small town character. Revitalize downtown.

Housing / Buildings Condition of existing properties (residential and commercial) is the problem. Until these issues are brought up to the standards of Carmel/Westfield/Zionsville etc, people will not consider Sheridan a viable location. At least not the types of residents you want to attract. Being a retired farmer, we should be careful where new housing and industry are located. Try to focus on what we have in town now, like vacant buildings. Make sure our utilities can handle more businesses as we grow – right now we can’t. Our nicest and newest community, Maplewood does not have cable road maintenance. It ends halfway and doesn’t make sense. We need a new historic building. Condition of 47 E should be improved. State and government funds cuts affecting condition of sidewalks is a problem. Link housing to economic development initiative. Limit the size of future housing – big developments ruin feel of small town. We need to have some control over the use of local land resources in order to make the community more attractive to residential development. For the most part the next several decades we will probably not see any industrial development. We will become a bedroom community for southern Hamilton County. If we want more industry, we should try to encourage it to locate more towards US 31. Being in Adams Township and outside the town limits, will still benefit Sheridan, especially if the town and township were to consider a merger. And let's not forget about Marion Township. They may be in Boone County, but they are still a big part of the Sheridan Community Economic Development Nice to get some interested businesses that would benefit from Westfield’s Grand Park but locate in Sheridan. Need new stores (grocery) and such close to town as possible for seniors and those who don’t want to drive far. More jobs. Jobs are critical – need businesses. Land Use I think it would be really nice to have a public pool utilized for the Public and the High School. Soccer fields, trails. Would like to see any new schools visible – like on 38 or 47. Visitors have trouble finding the schools. Identifying and creating sensible and attractive gateways and corridors which includes attention to pedestrian/bike connectivity with the community. Should come proper and intentional zoning of all areas to control the type of development on the highly visible corridor. Zoning should be established, enforced and publicized.

208 Sheridan Comprehensive Plan 209 Sheridan Comprehensive Plan 210 Sheridan Comprehensive Plan