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The Comprehensive Plan for Marion County, Indiana Community Values Component THE COMPREHENSIVE PLAN FOR MARION COUNTY, INDIANA INDIANAPOLIS INSIGHT: COMMUNITY VALUES COMPONENT iii INDIANAPOLIS The Comprehensive Plan for Marion-County Indiana Community Values Component

February 2002

Bart Peterson, Mayor Carolyn M. Coleman, Deputy Mayor for Neighborhoods

City-County Council Beurt SerVaas – District No. 2 Frank T. Short – District No. 21 John Bainbridge – District No. 8 David Smith – District No. 23 Elwood Black – District No. 6 Bill Soards – District No. 1 Philip Borst – District No. 25 Steve Talley – District No. 14 Rozelle Boyd – District No. 11 Jody Tilford – District No. 12 James Bradford – District No. 7 Maggie Brents – District No. 16 Bob Cockrum – District No. 19 Metropolitan Development Commission Lonnell Conley – at large Curtis Coonrod – District No. 5 Randolph L. Snyder, President Beulah Coughenour – District No. 24 Sylvia Trotter, Vice President William Douglas – District No. 10 Harold Anderson William Dowden – District No. 4 James J. Curtis, Sr. Ron Gibson – at large Gene Hendricks Monroe Gray, Jr. – District No. 9 Lee Marble Karen Celestino Horseman – at large Brian P. Murphy Harvey Knox – District No. 17 Robert J. Smith Lance Langsford – District No. 13 Ed Treacy Robert Massie – District No. 20 Lynn McWhirter – District No. 18 Mary Moriarty Adams – District No. 15 Department of Metropolitan Development Jackie Nytes – District No. 22 Joanne Sanders – at large Maury Plambeck, Director Scott Schneider – District No. 3

The City of Indianapolis is committed to running an open, accessible and responsive city government. The Department of Metropolitan Development intends that all of its policies, including this Comprehensive Plan, are formed consistent with the letter and the spirit of the Indiana Access to Public Records Act and the Open Door Law (Indiana Code Chapter 5-14-3 and 5-14-1.5). These public access laws provide for accessible public records and open public meetings.

The participation of citizens in land use and other decisions of city government is important. Concerns regarding public access should be directed to the director of the city department, including DMD, or the chairperson of the board or commission. Concerns may also be directed to the Mayor’s Public Access Counselor.

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PREFACE VI

CHAPTER ONE: PURPOSE OF THE COMPREHENSIVE PLAN 9

CHAPTER TWO: ENVIRONMENTAL CONDITIONS 17

CHAPTER THREE: HISTORICAL CONTEXT 29

CHAPTER FOUR: POPULATION, HOUSING AND LAND ABSORPTION 45

CHAPTER FIVE: VALUES, PRINCIPLES AND ELEMENTS 59

CHAPTER SIX: LAND USE 69

CHAPTER SEVEN: DEVELOPMENT METHODS 85

CHAPTER EIGHT: SUPPORTING ISSUES 95

CHAPTER NINE: IMPLEMENTATION OF THE COMPREHENSIVE PLAN 119

APPENDICES 127

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You are reading Indianapolis Insight, the update to the City of Indianapolis - Marion County Comprehensive Land Use Plan. The process used in developing this plan involved taking a close look at the form of the city and how its various parts work together. By gaining an insight into the city’s and region’s natural environment, land uses, transportation systems, economics and people, we can create a preferred vision for the future. By writing that vision down, we keep the dream in sight, so that we may work toward it.

The City of Indianapolis updates the Comprehensive Plan approximately every seven to ten years. These updates are not mandated by law, but as the city grows and technologies and markets change, the plan must be revised in order to remain a useful document.

Throughout the planning process, participants have been asked to dream a realistic dream. “Dream” and “realistic” may seem mutually exclusive, but “dreaming a realistic dream” actually captures the planning process well. It is important to develop a bright vision for the future, otherwise the city may grow bigger, but it won’t develop into a better place. However, the dream must be placed in its proper context: the reality of our history, geography and culture. The plan is intended to be “value-driven” with a balanced use of ideal community goals and visions set against a background of demographic, technical, and developmental information.

The Comprehensive Plan will help guide City decisions on land use and capital expenditures. The Plan highlights the values of the community, as stated by citizens. Goals and objectives have been outlined to enhance and preserve these values. Taken together, the values, goals, and recommendations that form the plan provide a rationale for land use recommendations, rezoning guidelines, regulatory changes, and process and procedural changes.

Indianapolis Insight was developed in two major components. The first component of the plan consists of community values and the resulting goals and objectives. The second major component consists of land use recommendations.

The Community Values component is well suited to guide decision-making when new development patterns and site plan designs emerge. As the urban environment evolves, decision-makers, planners and the community can refer to the values and goals in this section to guide development decisions. The values and the policies derived from them are particularly important given the long life span of comprehensive planning documents. This section also enables the community to consider other interests related to land use. For instance, policies related to historic preservation, public art, and cultural diversity are important to creating livable neighborhoods.

The second component of the plan, the land use recommendations, is required by state statute as the basis for zoning. Land Use maps are useful to staff, decision-makers and the public when reviewing projects. The maps are used to evaluate rezoning applications, to project future population and employment concentrations, and to consider redevelopment options. The beginning of a plan is a good place to think about how we measure the plan’s success. From time to time in development of this plan, frustration was expressed with the implementation of the previous plan, particularly with deviations from the land use recommendations. Proposals

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for changes in policies, procedures and training can be found in the Land Use, Development Methods and Supporting Issues chapters of this document. These changes to the system should help create a mindset of compliance with the plan.

A simple measure of the plan’s success would be to count the number of times a board makes a land use decision that is either consistent or inconsistent with the plan. However a simple tally would fail to consider the factors used to justify a deviation of the land use recommendations, accommodate factors such as mixed-use projects or consider projects that may meet the spirit of the recommendation but not the letter of the recommendation.

There are goals to be served by this plan beyond consistency with a map. The bigger goals are preservation and realization of the community values expressed by this document. It is important that all users of the Plan, including elected officials, appointed decision-makers, citizens and staff, keep these goals in sight.

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PURPOSE OF THE COMPREHENSIVE PLAN

“The greatest human achievements - from ancient pyramids

to modern skyscrapers - have all resulted from an ability to

envision the future and muster the resources needed to

achieve it.”

-American Planning Association-

is required by state statute as a basis for zoning and must include objectives and policies for future land use development and development of public ways, places, land, structures and utilities. A comprehensive plan is also required by a number of state and federal grants programs in which the City takes part such as Community Development Block Grants, Home Grants and federal highway funding. However a comprehensive plan can be much more to a city. Preparation of a plan offers the opportunity for the public to work with City leaders and staff persons to develop a vision for the development of the city.

In Indianapolis-Marion County, the Comprehensive Plan has historically been more than a series of policy statements. It has been a detailed guide for development, which has contained policies, maps, text and critical areas designating the most appropriate land use recommendations for all parcels of land in Indianapolis and explaining the basis for those recommendations. The Plan was initially adopted in 1965 and has been updated in roughly seven to ten year increments, with the most recent update occurring between 1991 and 1993.

The Comprehensive Plan for the City of Indianapolis - Marion County is a policy guide for the development of the community. The purpose of the Plan is:

• To improve the quality of the physical environment of the community in response to social, economic, and physical realities and forecasts;

• To provide for the well-being of the entire metropolitan community, rather than advance the special interests of individuals or groups within the community;

• To act as a guide in the formation of additional plans;

• To promote community goals, objectives, and policies;

• To coordinate the political and technical aspects of community development in order to eliminate conflict or duplication of public and private projects;

• To insert long-range considerations of goals in decisions about short-range actions; and

• To enhance citizen participation in community development and provide citizens with a sense of security and civic pride.

Authority to Compile a Comprehensive Plan

The Comprehensive Plan for the City of Indianapolis - Marion County is compiled under the authority granted to the municipal government under Indiana Code 36-7-4-501 through 512. Indiana Code provides for the preparation of the Comprehensive Plan, the adoption of the plan by the Metropolitan Development Commission (MDC), and for citizen participation in

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the planning effort. Furthermore, the Code states that the Comprehensive Plan, once adopted by the MDC, shall become law and replace the existing Comprehensive Plan, and act as a guide in ordinance and policy formation, future planning efforts, and certain public works projects.

Indianapolis Insight Process

This plan was constructed from three main sources: background studies and previous plans, public involvement, and existing conditions. An overview of existing conditions can be found in Chapters Two through Four.

Background studies and previous plans

A number of background studies were conducted in preparation for the Indianapolis Insight Plan. This plan builds upon the concepts and findings of the Report of the Growth Advisory Committee, the Township Facilities and Services Needs Assessments and the Indianapolis Development Assets book. To request copies of any of the following documents, please call (317) 327-5151.

Report of the Growth Advisory Committee

The Marion County Growth Advisory Committee was formed in the fall of 1999 to explore and report to the Metropolitan Development Commission on ideas that will encourage better growth patterns and to identify tools to manage growth.

The Growth Advisory Committee was composed of representatives of a varied and balanced group of organizations. The group met four times in late 1999. At the meetings, the committee heard speakers talk on topics germane to the issues of urban growth and held small group discussions.

This report looks at current issues of urban growth. The five chapter titles give a good sense of the breadth of the report. They are:

• The Nationwide Issue of Rapid Urban Growth. • National Growth Trends Echoed by Indianapolis. • Forms of Land Use Management in Indianapolis. • Growth Management Tools in Other Cities and States. • Growth Management Options for Indianapolis.

Three factors tied up within the issue of urban growth are rate, distribution and quality. Rate refers to how fast development is occurring. Distribution refers to how land uses are mixed or separated within general areas. Quality refers to how well the new development will hold up over time. Committee members were asked the question “Is metropolitan Indianapolis growing too quickly, too slowly, or somewhere in between?” Although there was not complete consensus on the answer, the general response of the committee is that Indianapolis is not growing too quickly. The committee was more concerned about distribution of growth and quality of development. These concerns led to the formation of two objectives.

We should strive to achieve a balance of land uses throughout the various parts of the county and the region. Balanced land use is important not only for tax base equity, but also for livable communities where people can live, shop, recreate and earn a living throughout the different phases of their lives.

New developments should be such that they retain their value over the long haul. Well- planned, well-built and well-maintained communities should retain their value and should not be a drain on society and government resources.

Township Facilities and Services Needs Assessments

An assessment of the need for various facilities and services in each township began in 1998 in response to citizen concerns about the ability of the physical and social infrastructure to keep pace with growth and development. The assessments look at:

• current supply of the township’s facilities and services, • current demand for facilities and services, • likely future levels of demand based on projected population, and • a comparison of supply and demand to determine need.

The individual township assessments were developed over an 18-month period in 1998 and 1999.

Although the facilities and services studied in each township assessment vary somewhat, they typically include hospital and medical care, emergency medical services, public safety, parks and recreation facilities, school, libraries, elderly care, youth services, children’s day care and cemeteries. The assessments did not study the adequacy of the townships’ streets and roads. The county’s transportation system is closely monitored and plans are regularly updated by the Metropolitan Planning Organization.

Indianapolis Development Assets book

The Indianapolis Development Assets (IDA) book provides up-to-date comprehensive information on Indianapolis-Marion County, Indiana. The IDA serves as an almanac, providing summary facts and figures on general important aspects of Indianapolis. The data provided in this document is especially useful to developers, researchers, market analysts, government officials, private agencies, and others. The information is presented by section in the form of maps, graphs, tables and text.

This update of Comprehensive Plan builds upon the concepts employed in earlier versions of the Plan. It also incorporates other planning efforts that have been adopted into the Comprehensive Plan as official Comprehensive Plan segments. A list of these plans can be found in Appendix A.

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Public involvement

Public awareness and involvement was maintained in a variety of ways throughout the Indianapolis Insight process. The entire process would not have been possible without the work and dedication of citizen volunteers. Through the Indianapolis Insight process almost 700 citizen volunteers have contributed over 3500 hours to the planning process.

A Steering Committee of 43 persons, representing various groups with a stake in the development of the city, was named. The list of committee members can be found in Appendix G of this document. Members included representatives of neighborhood organizations, environmental groups, builders, business organizations, school districts, mayors of the excluded cities and towns and township governments. The Steering Committee also included the chairpersons of eight issue committees. The Committee provided direction to the planning process and assisted in the coordination of citizen participation.

The first event to create awareness and solicit public involvement was a Kick-Off Conference held September 14, 2000. Over 1000 persons were invited to attend and bring others. Attendance was estimated at 220 persons for the morning-long event. The event included a presentation by Dr. Catherine Ross of the Georgia Regional Transportation Authority, a panel discussion by local leaders with various viewpoints on the topic of city development and a presentation of the planning process to be used for the Indianapolis Insight Plan. The conference was covered by the local news media.

Town Hall Meetings were held to gain community input in the planning process. The first series of Town Hall Meetings was held in September and October of 2000. Over 1200 persons were invited, including representatives of every registered neighborhood organization. Meetings were held in four locations around the city on various nights of the week over a three-week period. Attendance ranged from 20 to 40 persons per meeting. Participants were asked about what city development issues were important to them now and in the future. Participants were given the opportunity to preliminarily sign up for the issue committees. Three of the four meetings were covered by the local news media.

Following the Town Hall meetings, Issue Committees were formed to study various topics in more detail. The topics to be covered by each committee were developed from the information gathered at the Town Hall meetings. The eight issue committees were:

• Cultural, Social, and Education • Economic Development • Environment, Parks, and Open Space • Land Use Standards and Procedures • Neighborhoods and Housing • Redevelopment • Regionalism • Transportation and Infrastructure

The eight Issue Committees met eight to nine times beginning in late January 2001 through July 2001. Each committee was made up of 30 to 40 experts, city staff persons and citizens to discuss issues, and develop goals, recommendations and standards in their particular topical area. The committee meetings were open to anyone who wanted to attend. Attendance at the meetings was good throughout the process with one-half to three-quarters of each committee’s membership typically attending each meeting.

The invitation to join an issue committee was made at the Town Hall meetings and through a newsletter. Committee members were polled as to their most convenient meeting times and the meetings were scheduled accordingly. The meeting schedule was run in the Indianapolis Star and local television and radio news programs.

The work of the eight committee meetings was compiled into separate reports that were presented to the Steering Committee. Later the eight committee reports were merged with other information to produce this document, the community values component of the City of Indianapolis - Marion County Comprehensive Plan.

A second round of Town Hall meetings are to be held in locations around Marion County to present the results of the eight issue committees and the draft of the Community Values document. Like the first series of Town Hall meetings, these will be held in various locations around the City and on various nights of the week in order to avoid as many scheduling conflicts as possible.

Information about the process was also disseminated by a series of newsletters and an Indianapolis Insight webpage within the City’s website. The webpage detailed the planning process and includes notices of upcoming meetings and minutes of past meetings. The webpage has experienced more than 1200 hits from mid-December, 2000 through the middle of September 2001. The website has received national recognition in the area of E-planning in the July issue of the American Planning Association’s magazine Planning.

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ENVIRONMENTAL CONDITIONS

“Nature, to be commanded, must be obeyed.”

--Francis Bacon, Novum Organum--

of people living in community has presented challenges since the beginning of permanent settlements. The development of cities is the most obvious current-day shaper of the environment. Indianapolis has had to live within the fabric of the natural environment and has had to live with the choices of its forebears, such as the filling of swamps to create buildable land and the construction of a combined sewer system to provide the sanitary disposal of waste. Indianapolis will be faced with additional choices in the future, since projections indicate that between 91 and 93 percent of Marion County will be developed by the year 2025. Our descendants will live with the choices we make today.

Through the course of the town hall meetings and the issue committee process, it was evident that environmental considerations will become more critical to land use decisions, as available land is consumed through development. It is important, therefore, to understand the environmental constraints our community will face, so that rational, timely, and comprehensive decisions can be made.

Climate

Indianapolis’ climate features cool northern air masses alternating with southern tropical air masses to bring significant weather changes within days and create variability to the seasons. The area is also on the fringe of the climatic influence associated with the Great Lakes. The Great Lakes act as a giant heat sink and humidifier, moderating the temperatures of the surrounding land and increasing the moisture content of the air throughout the year.

Temperatures have ranged between a low of –27 degrees to a high of 107 degrees. Average temperatures, however, are more moderate and are shown in Table One. Generally, temperatures are higher than 90 degrees on an average of sixteen days per year and are below freezing an average of thirty-seven days per year. First freezing has occurred as early as September 30, but averages around October 16. The last freeze has occurred as late as May 27, but averages around April 22.

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Annual precipitation is evenly distributed throughout the year as shown in Table One. Spring and early summer rains usually exceed winter precipitation, with the least amount of precipitation occurring in February. Average annual snowfall is twenty inches, with nearly half of that total falling in January and February. Thunderstorms occur on approximately 44 days per year.

Table One: Weather Information

Month Temperature (degrees F) Precipitation Average Average Average Inches of Days of Minimum Maximum Total Inches Snowfall Snowcover January 17.2 33.7 2.32 8.2 9 February 20.9 38.3 2.46 7.8 7 March 31.9 50.9 3.79 3.2 3 April 41.5 63.3 3.70 0.0 0.5 May 51.7 73.8 4.00 0.0 0 June 61.0 82.7 3.49 0.0 0 July 65.2 85.5 4.47 0.0 0 August 62.8 83.6 3.64 0.0 0 September 55.6 77.6 2.87 0.0 0 October 43.5 65.8 2.63 0.4 0 November 34.1 51.9 3.23 1.6 1 December 23.2 38.5 3.34 5.8 6

Geology, Topography and Soils

Indianapolis is located near the geographic center of Indiana. It is comprised of approximately 257,888 acres and is located in the lower third of a large, flat natural region called the Tipton Till Plain.

Landscapes are very dynamic and evolve over time, through a continuous process of erosion and deposition. The topography and soils in Indianapolis were formed through the influences of three glacial periods, the last of which covered the area approximately 20,000 years ago. As the glaciers retreated from Indianapolis, the area was scoured to a flat plain with a gently rolling surface.

Low relief and few abrupt changes characterize the topography of the area, which varies between approximately 900 and 650 feet above sea level. Areas that demonstrate distinctive slopes and topography do so due to the actions of numerous rivers, streams and other tributaries formed from the melting and retreating glacial ice. Many ravine topographical features were formed from the post-glacial era to modern times as a result of erosion cutting through a cap of fine clay silt or wind-blown dust that covered post glacial formations. The deep valleys of the White River and Fall Creek are prominent topographical features, which now serve as floodplains for modern streams.

Glacial deposits range from 15 to 300 feet in thickness and cover the surface of Indianapolis with clay-rich (till) and alluvial parent materials. These parent materials are the primary source of a soil’s characteristics; however, the climate, topography, the length of time the forces of soil formation have acted on the soil material, and plant and animal life on and in the soil are also key determinates. The preponderance of soils outside the current urbanized area are rated severe for septic tank absorption fields and foundations. Ratings for septic absorption fields depend upon features such as a seasonal high water table, slow permeability and surface water ponding. Overcoming these limitations requires both sanitary sewer service and associated surface water removal.

In addition to the glacial till, major outwash deposits of sand and gravel occurred, primarily in the White River valley, but also in the smaller Buck, Eagle and Fall Creek stream valleys. Both the till and outwash rest atop rugged sedimentary bedrock, which generally consists of overlapping, gently tilted strata of sandstone, shale, and limestone.

The glacial outwash and sedimentary bedrock provide the natural resources of sand, gravel and crushed limestone. An estimated 439 million tons of these materials are commercially accessible. Approximately 15 million tons of these products are consumed in central Indiana each year.

Urban Forest

The sum of all native, naturalized and exotic shrubs and trees within the city comprise the urban forest. While Indianapolis possesses areas of significant woodlands and woodlots, there has been a large decline in urban trees over the last fifteen years. Urban development combined with a shorter life span has meant that urban trees have been disappearing faster than they are replaced. Trees removed for development fail to be replaced and only about one in four trees lost on public property are replaced.

In addition to the well-documented aesthetic benefits and wildlife habitats ascribed to woodlands, a thriving urban forest can also enhance the general welfare of the community. Trees absorb gaseous pollutants, such as carbon dioxide, ozone, sulfur dioxide and nitrogen dioxide. These substances are then recycled and store

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Water Resources

Marion County is drained by numerous rivers, creeks, brooks, runs and ditches, which all eventually flow into the White River (although Buck Creek takes a circuitous route via the Big Blue River). Natural characteristics of major waterways include relatively stable flow rates, low sediment and nitrogen loads, sustained and adequate dissolved oxygen levels, meandering channels, natural plant communities and corresponding native plant and animal diversity. Natural rivers and streams sustain a viable water supply, aid healthy riparian wildlife and support recreational opportunities.

There are no natural lakes or ponds in Marion County; however, engineered reservoirs are common. The two largest are Geist and Eagle Creek Reservoirs on the north side of the City; however, numerous small basins have been constructed to temporarily hold stormwater runoff and release it at a controlled rate into the public drainage systems.

Wetlands are lands transitional between terrestrial and aquatic systems where the water table is usually at or near the surface or the land is covered by shallow water. These wetlands provide habitat for improving stream quality, treating stormwater and providing habitat requirements. Many of the springs, seeps and seasonal ponds are not on wetland maps and escape attention. All known remaining wetland areas in Marion County have moderate to severe cultural impact, such as damage from invading, non-native vegetation and chemical runoff.

Watersheds

A watershed is an area of land that drains water, sediment and dissolved materials to a common receiving body or outlet. The term is not restricted to surface water runoff and includes interactions with subsurface water. Watersheds vary from the largest river basins to just acres or less in size.

Environmental protection programs in the United States have successfully improved water quality during the last quarter century, yet many challenges remain. The most recent national water quality inventory shows that, as of 1994, nearly 40 percent of surveyed waters in the US remain too polluted for fishing, swimming and other uses. The leading causes of impairment found in the survey include silt, sewage, disease-causing bacteria, fertilizer, toxic metals, oil and grease.

In Indianapolis, the management of water resources is done with a watershed approach. The watershed approach is a coordinating framework for environmental management that focuses public and private sector efforts to address the highest priority problems within hydrologically- defined geographic areas, taking into consideration both ground and surface water flow.

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Stormwater and Flood Control

Stormwater management, drinking water treatment, and wastewater treatment are the three basic water-related services provided to Indianapolis residents. Indianapolis has begun new programs to comply with new federal stormwater quality regulations, protect drinking water wells (wellhead protection), reduce problems caused by combined sewer overflows (CSOs), and improve efficiency of wastewater treatment.

Flooding of Indianapolis’ waterways is primarily of two types: heavy rains/snow melts or short high intensity storms. Flooding is not limited to any particular season or time of year. Water runoff is natural, but pavement and other impervious surfaces intensify it. How the runoff from hard surfaces is managed can either prevent or create flooding.

A variety of methods have been used to mitigate the effects of the flooding throughout the community. Those methods include the implementation and adoption of state and local building codes and a secondary zoning based on Federally designated special flood hazard areas. Additionally, a series of levees, channel improvements, realignments and reservoirs have been constructed to minimize flood damages.

Although the City has completed drainage improvement projects over the years, it has yet to implement a comprehensive, citywide stormwater drainage improvement plan. City council members, city staff, and the Mayor’s Action Center annually receive hundreds of calls from property owners who are concerned about poor drainage, deferred maintenance, and nuisance flooding.

In early 1998, the City of Indianapolis committed to developing a Countywide Stormwater Master Plan. The plan was initiated by proposals in the City-County Council to fund stormwater improvements.

Wellfield protection

Most of Indianapolis’s drinking water comes from surface sources such as White River and Fall Creek. However, while the supply of surface water remains the same, the demand for water is increasing, so a growing proportion of the County’s drinking water is being taken from the groundwater by wells. The areas where the wells are located are referred to as wellfields.

Wellfields are part of the larger aquifers that lie under Marion County. Aquifers are porous underground water-bearing strata.

A safe, efficient groundwater supply system requires monitoring, treatment and prevention of contamination. To protect the underground drinking water supply, the Wellfield Protection Zoning Ordinance was adopted in 1997. This ordinance created Wellfield Protection Zoning

Districts that are delineated by the time a drop of water takes to travel from the ground’s surface through the ground to a well intake. The districts are divided into W-1 (one year time of travel) and W-5 (five year time of travel) zones. The ordinance provides for additional review of permits for businesses that wish to locate in wellfields and that use products that may contaminate the groundwater. These businesses are typically asked to make accommodations for the potential spills of contaminants.

Combined Sewer Overflows

More than 100 years ago, Indianapolis installed a combined sewer system to carry both sewage and stormwater away from homes, businesses, and streets. This system carried wastewater directly to several of the city’s rivers and streams, a standard practice at the time. As the city grew, the system created too much waste for the waterways to handle on their own. Federal laws required Indianapolis and other cities to build wastewater treatment plants to treat the wastewater before it was discharged into the river. Indianapolis now has two wastewater treatment plants, the Belmont Advanced Wastewater Treatment (AWT) plant, built in 1925, and the Southport AWT, built in the mid-1960s.

Indianapolis’ first sewer system carried both sewage and rainwater in the same pipe, making it a “combined” system. During dry weather, a combined sewer system adequately performs its job of carrying sewage to treatment plants. When it rains or snows melt, however, the water entering a combined system can exceed the capacity of the sewer pipes or treatment plants. When this happens, combined sewer systems are designed to overflow directly into nearby streams or rivers, so the sewers do not back up into homes and basements. This concept is called a combined sewer overflow.

The problems with combined sewer systems were recognized in Indianapolis as early as 1944, when the Preliminary Master Plan for the City indicated:

“It is apparent that when heavy rainfall or flood conditions occur, the sewers in some neighborhoods are surcharged, becoming temporarily ineffective, and the disposal plant is unable to process the volume of incoming sewage…

Early action should be initiated with regard to a thorough checkup and analysis of the City’s sewage disposal. A considerable period of time will be required to do this and plans for actual constructive work also require time. This project is of the highest priority in the interest of the health and safety of the whole community, and should be in blueprint form as early as possible to be carried out as soon as material, labor and funds can be provided. It seems no more fitting than the capital city should set an example in conclusive elimination of pollution of natural water resources and in an effective sewage disposal.”

Combined sewer overflows are a major cause of water pollution in Indianapolis. Combined sewer overflows carry raw sewage, disease-causing bacteria and viruses, industrial pollutants, oil and grease, and other pollutants into rivers and streams. These pollutants can elevate bacteria levels and reduce oxygen in the water, creating water conditions harmful to fish and humans. Fish kills can hit popular species such as bass and bluegill and make it hard

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The capital costs to fix the combined sewer overflows could cost Indianapolis $840 million to $1.3 billion – by far the largest environmental cost we face. Operation and maintenance costs over a 20-year period could add $110 million to $160 million, depending on the final alternatives selected.

Ozone and Particulate Emissions

While the city of Indianapolis provides a high quality of life, that quality continues to be threatened by the dangers of air pollution. In 1970 Congress passed the Clean Air Act with the intent of making the preservation of air quality a national priority. The United States Environmental Protection Agency (EPA) has used this authority to establish a wide variety of standards and programs in order to protect public health, the environment, and the quality of life from the adverse impacts of air pollution.

Air pollution can result from many various sources. Emissions from automobiles, refineries, and factories rise up into the ozone layer and eventually lead to the creation of smog. At the same time, fine particles from trucks, buses, and power plants that are released into the air enhance the mass and density of the smog. As the city of Indianapolis experiences new development, the factors that contribute to air pollution increase as well.

National Ambient Air Quality Standards (NAAQS) are set by the EPA in order to protect public health and welfare. Based on data monitored by the EPA between 1994 and 1996, Indianapolis Metropolitan Area, which includes Marion and the surrounding counties, is a potential 8-hour ozone non-attainment area.

Areas that are designated as non-attainment must submit air quality plans to the EPA. These plans are known as State Implementation Plans (SIPs) and they are supposed to show how standards will be attained. Areas failing to meet this requirement must then face Clean Air Act required sanctions and other penalties such as a loss of transportation funds.

Non-attainment areas also face the possibility of economic impacts on the community. Additional controls on small businesses and industry would not only make it more difficult for existing companies to function, but it could also make the area less attractive for new ones as well.

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28 THE COMPREHENSIVE PLAN FOR MARION COUNTY, INDIANA INDIANAPOLIS INSIGHT: COMMUNITY VALUES COMPONENT THE COMPREHENSIVE PLAN FOR MARION COUNTY, INDIANA INDIANAPOLIS INSIGHT: COMMUNITY VALUES COMPONENT 29 HISTORICAL CONTEXT HISTORICAL CONTEXT 3 CHAPTER THREE

HISTORICAL CONTEXT

“One must always maintain one’s connection to the past and

yet ceaselessly pull away from it. To remain in touch with

the past requires a love of memory. To remain in touch

with the past requires a constant imaginative effort.”

--Gaston Bachelard-- 1884-1962

The settlement of Indiana began in the south, close to the Ohio River. By the time of statehood in 1816, it was still confined to the lower third of the state, not only because the great river was the highway to the east, but also because treaties with the Native Americans closed the northern lands. The “New Purchase” of 1818 removed this restriction from the middle third of the state, effective upon the migration of the various tribes within three years.

The dense forest was all encompassing, stretching from the Ohio River to the dunes and grassy plains surrounding Lake Michigan. More than 50 species of trees towered above the rich, poorly drained soil of central Indiana. Black walnut, white oak, poplar, white elm and hickory were common; however, the beech and sugar maple dominated the area that would become Marion County. Two waterways, the White River and Fall Creek, meandered through this woodland encouraging an abundance of flora, fauna, fish and wildlife. The confluence of these two waterways created a favorite hunting ground for the Miami Confederacy, an alliance of the Miami, Shawnee, Delaware, Kickapoo and Potawattomie Native American tribes, a hunting ground held until the Treaty of Saint Mary’s, signed in 1818, surrendered the territory to settlers in 1821.

New Site for the State Capital

With the admission of Indiana to the union in 1816, Congress had made a donation of four square miles of land for the site of a capitol wherever the State might choose. Indiana’s capital had moved with the State’s growing population, first at Vincennes, and then to Corydon; however, in January 1820, a reluctant General Assembly, realizing that Corydon was an inconvenient location for a capitol, appointed a commission for the selection of a permanent seat of government. Politics dictated a central location, but transportation needs of the era demanded a riverside location. These two criteria seemed to determine a site on the White River near a trading station operated by William Conner.

This commission met at Vincennes in May 1820 and ascended the River, investigating many sites along the way. Eventually, the commission returned to the confluence of the White River and Fall Creek and decided to locate the capital there. The site was ideal for future milling sites and the level landscape promised both ample farmland and room for extensive urban expansion. However, the site was plagued by swampy creeks and bayous, which would ultimately affect the City in many unforeseen ways. The General Assembly approved the site selection on January 6, 1821; however, the Assembly argued for many days concerning the name of the new Capital. The names of many Native American chiefs were proposed; however, Jeremiah Sullivan proposed a hybrid English- Greek name meaning “the city of Indiana”. After some initial derision but little opposition, the new state capitol was named Indianapolis.

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City Takes Shape

The area selected for the new capitol was not uninhabited by settlers. William Conner had set up his trading post (now the Conner Prairie Pioneer Settlement) north of Marion County in 1806. Jacob Whetzel and his son Cyrus settled in the bluffs of the White River in 1819. George Pogue, a blacksmith, allegedly settled in Marion County in 1819; however this claim is disputed. Indiana had been a state for four years when, in early 1820, John and James McCormick packed up their families and proceeded north, from Connersville. Finding a suitable location along the east bank of the White River, near the location of the present day Washington Street Bridge, the McCormick families built a log cabin, and, traditionally, became the first settlers of Marion County.

Planning came to Indianapolis shortly thereafter in the form of two surveyors: Alexander Ralston and Elias Fordham. Ralston was associated with Pierre L’Enfant’s survey of Washington D. C., and Fordham had close ties to English settlements in Illinois. Ralston and Fordham laid out the city on a grid, a mile on each side. At the center, on a rounded hill of sugar maples, they placed a circular street as the site for the Governor’s residence. The residence was constructed but never occupied, since the activity of the Circle made the location unsuitable for a family residence. Finally, four diagonal streets were added, each ending a block short of the Circle.

In those early days, the form of the City began to take shape. Malaria, caused by the mosquito infestation around Pogue’s Run and White River, devastated early settlers and pushed residential construction to the north and east away from those swampy marshlands. Property along Washington Street attracted speculators, who often purchased lots on hopes of the higher future prices demanded for commercial property. The riverfront area developed into a commercial and industrial area, with a scattering of working-class homes.

While the sales of lots associated with the original Donation were brisk, Indianapolis remained, at most, a pioneer village until 1824, when the Capital arrived from Corydon on a 4-horse wagon after a 10-day journey. The population of Indianapolis was between 400-500 people by the end of 1821; however, the delay in re-locating the capital caused the forfeiture of property, purchased on a speculative basis. The economy of the City became based

around agriculture, and most of those not engaged in agriculture were employed in food processing. By 1822, the town had a gristmill, two sawmills, three groceries, two mercantile houses, several small workshops, and seven taverns.

Early Transportation Improvements

The many early attempts to bring dependable transportation systems to Indianapolis were failures. Congress had declared the White River navigable; however, most large vessels attempting travel on the River were subsequently grounded or wrecked. Only small flat bottom boats were found suitable. Inspired by the fabulous success of the Erie Canal, the General Assembly created the Mammoth Internal Improvements Bill. The bill envisioned several canal routes into the City; however a severe financial panic in 1837 doomed the overextended bond issues of the State, and the only portion of the canal to be finished extended from Broad Ripple to Indianapolis.

The construction of a roadway system, however, did open up Indianapolis to much of the rest of the United States. A road between Indianapolis and Fort Wayne was ordered built in 1825. The Crawfordsville Road and the Michigan Road were built in 1828. Lafayette Road was built in 1829. The extension of the National Road to Indianapolis in 1827, planned for in the original plat of the City, was the most heralded event in early roadway construction. The completion of these roads lessened the isolation of the wilderness capital and Indianapolis became a major stopping point for traffic moving west. These roads were, however, erratically surfaced; therefore, by 1833, Indianapolis was described as a forlorn little village, having no advantage other than lying in the middle of an extremely fertile country and being the capital of a new state.

The Railroad

The progress of constructing the Madison Railroad was slow, halting at several temporary stations at North Vernon, Columbus, Edinburg, Franklin and Greenwood. The line was little more than a series of steam-drawn wagons running on wooden rails topped with iron plates; however, by spring of 1847, it had reached to within ten miles of the city. Most people had never seen a railroad, so as the track approached Indianapolis, curiosity was widespread. The last spike was driven at the South Street station on October 1, 1847, and rail transportation had arrived in Indianapolis. By 1855, several separate railway systems radiated outward from the city, and the new

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lines quickly altered the face of the city. Taking their lead from the Madison Line, each chose the south side for their terminus. The fierce competition drove each company to build its own station; and the city, concerned with this proliferation, intervened and induced the lines to share tracks and facilities. Ultimately, this resulted in the construction of the nation’s first Union Station in 1853. By the end of the 1860’s, the original frame structure was no longer adequate for the volume of traffic and a massive brick and limestone structure replaced the original building in 1888.

With this new railway system, Indianapolis was well prepared to serve the union as an important communications, assembly and supply center during the Civil War. The two fairgrounds became Camps Sullivan and Morton, housing outgoing soldiers during the early stages of the war and serving as a prison for captured Confederate prisoners during the latter stages. As a measure of the city’s expansion during this time, the census of 1870 records an increase in the manufacturing labor force from 587 to 5,929 and the value of products increased from $890,000 to $16,384,000. This growth was not of a temporary wartime nature. The new rail network brought prosperity to Indiana farms and centered in Indianapolis the function of processing and shipping of farm products.

Industrialization

The depression of the 1870’s brought a protracted pause in economic growth, lasting ten years after the panic of 1873. The 1880’s, however, brought recovery from depression, and Indianapolis emerged as an important manufacturing center, which would lead Indianapolis away from the dependence on the local agricultural community towards a broader national market.

Indianapolis industrialists were first to capitalize on increased farm productivity, and meatpacking houses lined the banks of the White River. Kingan and Company opened in 1863 with the claim to be the world’s largest; however, the original plant was destroyed by fire in 1865. The company rebuilt a new plant and adopted the new technology of refrigeration, which eliminated the narrow seasonal limits of winter slaughtering. Innovations such as these made pork packing the leading industry in the city and made the city the nation’s fourth leading pork producer.

Foundries and machine shops were also an important part of the economy. The discovery of extensive soft coal deposits in southwestern Indiana and the continued expansion of Hoosier rail lines provided fuel to replace the wood of Indiana’s dwindling forests. As a result, Indianapolis’ air was filled with bituminous odors and its winters were marked with black snows. Metal products, however, soon replaced flour milling as second only to pork in local production.

Vegetable canning was also among the new food processing industries. Drawing upon the

states expanding truck gardens, producers began to can sweet corn, hominy, tomatoes, cucumbers and beans in quantity. Van Camp began such operations in the 1860’s, later expanding into the production of pork and beans in a tomato sauce for a generation that knew them as Boston Baked Beans.

Indianapolis’ central location and excellent rail conditions also attracted many types of businesses. In 1872, Lyman S. Ayres founded a department store chain that figured prominently in the city’s history. Four years later Eli Lilly opened a small laboratory, which would grow into a pharmaceutical giant.

Because of the new technology introduced in many of the processes, industry became increasingly reliant on commercial banking. Indianapolis’ first banks were state chartered, beginning with a branch of the Second State Bank of Indiana. These institutions were joined by a host of competing private banks created under the state’s general incorporation banking law of 1852. While many of the banks in western states had poor reputations, Indiana banks gained a national reputation for sound management that survived until the 1880’s, when a combination of hard times and poor investments took their toll. Most early banks disappeared from the city. Those that survived, however, experienced a rapid growth of assets.

The rapid expansion of industry in Indianapolis also attracted a surge of immigrants. Germans and Irish immigrants were predominant; however, a number of smaller nationalities, such as Italians, Czechs and English also flourished. This influx, and increasing birth rates, produced rapid population increases. Census figures indicate that the population of Indianapolis increased from 18,611 in 1860 to 169,164 in 1900.

Demand in housing soared and the local construction industry promoted individual houses rather than row houses or apartments. Developers quickly seized on these trends, dotting the city with a variety of suburbs, which were often distinct in income or occupation. For the affluent there were Woodruff Place and Irvington. Railway workers gravitated to Brightwood or Beech Grove. Meat packing workers were drawn to West Indianapolis or Haughville. Better transportation across the rail lines allowed the southside to grow. Indianapolis was becoming a checkerboard of neighborhoods.

The Automobile

In 1891, Charles Black built the first “horseless buggy” in Indianapolis, and soon the city abounded with pioneer automobile companies. Altogether, between the time of the first Waverly Electric in 1898 and the closing of the Stutz Motor Car Company in 1934, forty different makes of cars were produced in Indianapolis. Howard Marmon saw in automobile manufacture an opportunity for precision engineering to rival Rolls Royce. The Stutz Company offered roadsters, including the famous Bearcat of the 1920s. Fred and August Duesenberg established their company in 1920.

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The fascination with cars led naturally to their promotion. Road rallies and routes became popular, among them the “Dixie Highway” from Indianapolis to Miami. The intersection of this route with the National Road soon caused the Chamber of Commerce to adopt the city slogan: “The Crossroads of America”.

One of the earliest promotions associated with the automobile would become an American institution. Carl Fisher, James Allison, Frank Wheeler and Arthur Newby created an automobile racing track on West 16th Street. The Indianapolis Motor Speedway opened in September 1909 for a racing carnival; however, the macadamized surface created numerous accidents, and the track was hastily repaved with brick to create a safer track. By May 1910, it attracted 30,000 spectators and an annual tradition was born.

Indianapolis had earned a reputation as a producer of expensive, luxury automobiles, which were built for the few with money to enjoy style and high quality workmanship. Each was a mechanical and artistic model, but the market for such fine-quality transportation was limited and profitability was marginal. At the height of automobile production in 1907, Indianapolis ranked fourth in the nation in the volume of production and equaled Detroit in the value of sales as late as 1920. Automobile production, however, was increasingly focused on assembly line, low-cost, mass production. It was only a matter of time, accelerated by the Great Depression, until the Indianapolis Motor Speedway alone remained to remind the city of an industry in which the very excellence of craftsmanship had ultimately contributed to the undoing of that craft. Indianapolis remained a racing center and a major supplier of parts, but it had lost the main contest of automobile production to Detroit.

Aside from the rise and fall of production, the development of the automobile had an enormous impact on the city. Probably most important was the improvement of roads that connected Indianapolis to the rest of the state and beyond. As the popularity of this new mode of transportation increased, so did the demand for better roads. The townships extended a network of gravel and crushed stone roads across the county, taking advantage of state laws permitting taxation of property owners who were adjacent to the roads. The General Assembly created a state highway commission in 1917 and promptly designated the funds for a system of five “main market” highways, two of which intersected Indianapolis. In 1925, Congress created a system of highways greatly facilitating travel by automobile. Four of these highways passed through Indianapolis.

The success of the automobile, however, was not without casualties. Between the turn of the century and the advent of a modern highway system, construction of 2,200 miles of electric railways along ten radial routes gave Indianapolis the brief distinction of being the foremost interurban center of the nation. It made it possible for central Indiana farmers to enjoy up to seven million annual shopping expeditions to downtown Indianapolis. Within fifty years, the interurban system would vanish and downtown retail and the railroad would be seriously endangered.

Diversification

At the turn of the century, America was entering an era when light industries were as important as the older, heavy industries. Light industry could be started with small investments, and while their failure rate was high, the possibility of success was very real for local entrepreneurs. Madam C. J. Walker opened a small cosmetics firm and through innovative marketing and management, expanded into one of the largest black-owned companies in America. By 1905, Eli Lilly and Company had grown from a pharmaceutical house to a million-dollar operation. Indianapolis was soon producing tools, cleaners, baking equipment, paint, clothing, books and other diverse goods. Food processing, while still dominating, had slipped to barely a quarter of the urban output, and at least fifteen other manufacturing areas accounted for accounted for at least a million dollars of the city’s $231 million of total production.

The city also maintained its local economic base through retailing. Merchants stressed attractive merchandising, diversified offerings and impressive shopping buildings. Retail stores were fast replacing the hotel as showplace buildings. In 1905, L. S. Ayres and Company opened a store on Washington Street. It featured 250 feet of show windows, a marble main floor, mahogany furnishings and elevators to all eight floors. More importantly, it offered a range of clothing and accessories far beyond the traditional dry goods store. The lavish store set in motion a competition among downtown retailers.

The Great Depression

During the early decades of the 20th century, Indianapolis continued to grow. By 1920, the city’s population exceeded 300,000 and there were more than 1,000 manufacturing establishments. Nearly all of Indianapolis’ hopes were dealt rude blows, however, by the Great Depression, which was the worst crisis that ever confronted the city. Small businesses failed, large ones faltered, and unemployment soared. Construction slowed and urban blight became a problem.

Indianapolis was particularly vulnerable, because the city’s economy was tied closely to consumer goods. The goods required regular purchases, which dropped drastically as panic followed the 1929 crash. The city responded to the crisis as best it could. Private and public social agencies provided emergency needs for victims of the Depression and city and county employees contributed one percent of their incomes to a municipal soup kitchen. But with over 10,000 families on relief in Marion County and the manufacturing workforce nearly halved, it quickly became clear that these efforts would not cope with the magnitude of the problem.

The Depression brought the Federal government into local affairs. Various new deal agencies, such as the Federal Emergency Relief Administration, Public Works Administration and the Works Progress Administration spent millions in the city through work relief programs or

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through grants and loans to the city and county governments. Many projects were temporary make-work projects involving unskilled labor, while others were monumental public works programs, which left a permanent mark on the city’s physical landscape. The extension of Fall Creek Boulevard, the construction of Pepsi Coliseum, and the building of Lockefield Gardens are examples of the impact that these programs had on the city. Indianapolis Metropolitan Airport also began to take shape on the southwest side.

Ultimately, federal government involvement brought the city, and the country, out of the Depression with the involvement in the Second World War and began an era of prosperity for the city. As the federal government expanded its national defense programs local companies expanded production for wartime needs. Allison expanded to produce high-speed fighter plane engines. Kingan and Company and Van Camp produced rations. Eli Lilly produced drugs for tropical diseases.

Post-War Development

The post war period was one of continued prosperity, but a major change took place in the City’s economy with the decline of the railroad. The automobile, the trucking industry and the new federal highway program begun under President Eisenhower combined to cut deeply in the freight and passenger train businesses. Union Station, once filled with bustling crowds, eventually stood as an almost unused relic of a bygone era. In 1946, 69 trains left the station daily, but within 30 years this number would fall to 18.

The automobile and rapid increase in the population following the war also created a suburban housing boom. Marion County’s population increased from 460,926 in 1940 to 792,000 in 1970. Construction pushed out to the county lines and began to spill out to such nearby towns as Carmel. New building techniques often lowered building costs and farmers and developers offered large, low-cost lots. The housing boom altered the shape of the city dramatically.

But it was alterations in retail patterns, which introduced the biggest changes in development patterns. Apart from corner businesses along streetcar lines, retailing had always been concentrated near the Circle. However the shift to suburbia, and the failure of most mass transportation systems, continued the dominance of the automobile, and retailers were attracted to the suburbs. Grocers, cleaners, hardware stores, and other high-turnover businesses led the way. Branch banks and auto dealers soon followed.

Retailers began to speak, as they do today, of a location’s life cycle as a decade or less. Retail locations leapfrogged one another to create larger more creative layouts. The street-front stores of the 1940’s were replaced by strip development setback from common parking lots in the 1950’s. By the mid-1950’s, true shopping malls began to be developed, and large downtown retailers began to open major branches in those malls, where operating costs were lower. Unable to offer unlimited free parking and eliminate traffic congestion, many downtown businesses declined or closed, creating centers of decay that threatened to spill over into adjacent residential property.

Industry conformed to the same pattern as well. While many older firms, such as Eli Lilly,

Allison and Western Electric, expanded at their central locations, most light industry and some heavy industry reflected the drawing power of the suburbs, opening new branches in traditionally distant locations. The first industrial parks, as well as many that have developed since 1960, took advantage of the interstate highway system. This system of urban highways was developed in 1957. The first links of Interstate 465, the belt roadway, opened in 1961, and, by 1970, I-465 was completed. Food processing went into decline. Stockyards and packinghouses in other cities began to draw away local business from older, outmoded facilities. Kingan and Company, now named Hygrade, closed in the early 1960’s and the stockyards soon followed. As a result of these changes, the industrial base became highly diversified. The central location to many regional markets and excellent transportation facilities made Indianapolis attractive to distribution and warehousing operations.

Office development also left the downtown. Almost all office buildings before the Depression and during the early pre-war years were built downtown. Suburban office buildings were of little importance until the late 1960’s; however, occasional office construction booms have occurred since, with a majority of the office space in Indianapolis being constructed subsequent to 1974 and located in the suburbs.

UniGov

The serious problems of business in the city were joined with the problems of neighborhood decay. The problems were partly those of age. Houses built to earlier codes often lacked wiring, plumbing and insulation common in newer construction. The automobile also contributed to the problems, since the older subdivisions were created without adequate provisions for this now common part of the city landscape. But rapid social change was also at fault. Many areas experienced sudden changes in residents. Uneconomical large homes were transformed into multi-family housing, changing the income patterns of entire neighborhoods. Suburban flight became reality.

The problems, however, should not be over-emphasized. Indianapolis was in better physical and economic shape than most large cities. Median income was high, home ownership was close to the top, most public services functioned well. Local leaders recognized that the continued vitality of the city required broad attention to three considerations: suburban growth, downtown redevelopment and neighborhood revitalization.

For many years Marion County experienced different needs for its urban, suburban and rural areas. As suburbia spilled over the actual city boundaries, the distinction between government services provided inside and outside the city broke down. A few of the new residential and commercial areas were annexed, and the city map began to look like a curiously tentacled creature. In 1969 a major effort was made to better accommodate the increasing needs of a rapidly growing and suburbanizing population, and the General Assembly enacted UniGov, a consolidation of the city and county governments. Many governmental agencies and overlapping jurisdictions were reorganized. The legislature was consolidated into a City-County Council. The Office of the Mayor was strengthened and the authority of the Mayor included all of Marion County, which enabled the Mayor to effectively address many metropolitan problems.

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But the reorganization was actually much less than the name “UniGov” implies. Beech Grove, Lawrence, Southport and Speedway guarded their local autonomy and became excluded cities. Legalities and political compromises made it necessary for some governmental units, such as the township and county offices and judicial system, to remain unchanged. Most significantly, school, fire and police jurisdictions remained untouched. The result is a unified government, which consists of sixty-one distinct taxing districts based upon these separate jurisdictions.

Amateur Sports Capital of the World

Indianapolis had long been recognized for the 500-mile race, major league basketball and minor league hockey and baseball teams. The completion of Market Square Arena in 1974, as a home for the Indiana Pacers, followed, by four years, the movement of the Amateur Athletic Union to Indianapolis. This blend of amateur and professional athletics struck local leaders in the mid-1970’s as a prescription for the city’s future. Armed with this vision, the city launched a well-planned campaign to attract sports events and organizations.

Within a decade, stadiums were constructed for tennis, track and field, swimming, cycling and professional football. International, national and other sports related organizations relocated to Indianapolis. National championships were hosted by the city in a variety of professional, collegiate and amateur sports. The relocation of the Colts professional football team in 1984 and the National Collegiate Athletic Association (NCAA) headquarters in 1998; the hosting of the 10th Pan American Games in 1987, the World Championship Gymnastic Championships in 1991, the NCAA Men’s Basketball Final Four; the construction of Victory Field as the home of the Indianapolis Indians, and Conseco Fieldhouse as the new home of the Indiana Pacers are indications of the city’s determination toward this vision.

The Resurgence of Downtown

Between 1978 and 1988 nearly $2 billion went toward downtown construction and renovation. Major renovations include the Indiana Roof Ballroom, the Canal, the Soldiers and Sailor’s Monument, the World War Memorial and the Hilbert Circle Theatre. New construction is represented by the Bank One Tower and White River State Park, which contains the Eiteljorg Museum, the Indiana Historical Society, the Indianapolis Zoo, and the new Indiana State Museum.

The opening of the Circle Centre Mall signaled the return of retail to the downtown area. The completion and expansion of the Convention Center has similarly contributed to the resurgence of the downtown by increasing the visibility of Indianapolis to the rest of the United States and to the world.

Yet the most striking feature of Indianapolis remains the continuity in the face of steady growth. Few large American cities incorporate so many of the elements of their past into the fabric of their present. Gone are the days of “a forlorn little village”, “Indian-no-place” and a “farm with streetlights”. In the future, Indianapolis can turn to other matters, such as improving education, nurturing a cultural identity, revitalizing neighborhoods and generally improving the quality of life.

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History of Planning and Development

As previously mentioned Alexander Ralston and Elias Fordham laid out the original plat of the City. Certain land uses were specified in this plat. The Governor’s residence was to be located on the Circle, the courthouse was to be located on the east side, and the state house was to be located on the west side. While the Governor’s residence is no longer located on the Circle, the present sites of the City-County Building and the Indiana State House correspond to these locations on the original plat.

Most land use, however, went unregulated until 1921, when the Common Council adopted the first zoning ordinance. This ordinance established restrictions based upon land use, height of structures and lot area. The five use districts were Dwelling House, Apartment House, Business, First Industrial and Second Industrial.

An extensive survey of Indianapolis’ residents was conducted in 1929 and the results were published in a report entitled The Leisure of a People. This study was a comprehensive look at both public and private recreation providers and overall park planning recommendations were made concerning the recreational needs of the populace. The study proposed the expansion of park acreage, facilities and programs and called for park and school boards to do cooperative planning. Previously, the City had hired John Olmstead (in 1885) and George Kessler (in 1905) to prepare park plans.

In 1944, the City Plan Commission submitted a Preliminary Master Plan for the City of Indianapolis. The text of this report summarized a number of subjects; however a great deal of further study was recommended. The Plan indicated that the knowledge of past trends, present conditions and a considered judgement of what can be anticipated would be necessary to provide a plan that adequately serves as a guide for growth.

In 1948, the Board of Commissioners adopted the Marion County Master Plan Permanent Zoning Ordinance for those portions of Marion County not subject to zoning regulation under the jurisdiction of a city or town. With the adoption of this ordinance, all portions of what would become the Consolidated City of Indianapolis were regulated under some sort of land use controls.

Chapter 283 of the Acts of the General Assembly was enacted in 1955. This Act authorized the creation of a single planning and zoning department in every county having a first class city, established a metropolitan plan commission and vested it with the power to establish a master plan for all areas within the county.

The City of Indianapolis initiated a study in 1956 of local traffic problems through the Mayor’s Traffic Improvement Committee. The purpose of the study was to develop a major street plan that would make maximum use of existing streets. The study was to make recommendations for improvements to the existing street system and to make general recommendations for long-range transportation needs. As a result, in 1958, the first Official Thoroughfare Plan was adopted. Revisions of this Plan continue to be used to this day. The Plan identifies major street improvements proposed for the City to provide the roadway capacity needed based upon projected changes in population and employment. Today, as this Plan is updated, it

In 1962, the Industrial Zoning Ordinance of Marion County was adopted pursuant to Chapter 283 of the Acts of the Indiana General Assembly for 1955. This Act established a single planning and zoning authority in Marion County. Subsequent adoption of the Central Business District Zoning Ordinance (1964), the Dwelling Districts Zoning Ordinance (1966) and the Commercial Zoning Ordinance (1969) followed, resulting, ultimately, in the adoption of one set of zoning standards for the Consolidated City/County.

In 1965, the first Marion County Comprehensive General Land Use Plan was adopted. This plan is the overall land use plan for Marion County. In 1965, the plan included recommendations for future commercial, residential, and industrial areas as well as recommendations for the location of new parks and schools. This Plan has been updated four times since this initial adoption, in 1969, 1977, 1984, 1991-1993. This document is the fifth revision of the 1965 original.

The nine-member, mayor-appointed Indianapolis Historic Preservation Commission (IHPC) formed in 1967. The mission of the IHPC and its professional staff is to work in cooperation with the City of Indianapolis to preserve both the character and fabric of historically significant areas and structures. Since 1976, the IHPC has had a professional staff that functions as a division of the Department of Metropolitan Development. The IHPC provides design and zoning review and approval in ten locally designated historic areas and three conservation districts. These neighborhoods are: Chatham-Arch; Lockefield Gardens; Fletcher Place; Fountain Square; Herron-Morton Place; Ransom Place Conservation District; Lockerbie Square; Old Northside; New Augusta Conservation District; St. Joseph; Wholesale District; Woodruff Place; and Fayette Street Conservation District. In addition to these districts, six individual buildings have been designated as historic areas by the IHPC. The tasks generated by the processing of applications and review of proposed projects in these designated historic areas comprise the majority of the staff ’s workload.

In 1968, the Indianapolis Regional Transportation and Development Study: A Transportation and Land Development Plan for the Indianapolis Region was adopted. This report represented the first regional transportation plan and was the first planning study to specifically address the land-use and transportation connection. The current Indianapolis Regional Transportation Plan evolved from this plan.

In 1969, the first subarea (or neighborhood) plan to be prepared for the city, Metropolitan Subarea Plan-Highland-Brookside, was completed by the Metropolitan Planning Department (now Department of Metropolitan Development). This plan was prepared jointly by city staff and an area-wide citizen planning committee. Since that initial Plan, over fifty similar plans have been prepared for neighborhood areas of the city. Subarea plans are adopted by the Metropolitan Development Commission as segments of the Comprehensive Plan and are used to guide development policy.

42 THE COMPREHENSIVE PLAN FOR MARION COUNTY, INDIANA INDIANAPOLIS INSIGHT: COMMUNITY VALUES COMPONENT THE COMPREHENSIVE PLAN FOR MARION COUNTY, INDIANA INDIANAPOLIS INSIGHT: COMMUNITY VALUES COMPONENT 43 HISTORICAL CONTEXT HISTORICAL CONTEXT

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“The American Dream is changing. The future is not necessarily a linear extension of the past, and yesterday’s market is not necessarily tomorrow’s…American metropolitan areas can recapture their livability and maintain the precious qualities that we cherish in everyday

life, even as they grow and change for the future.”

--Peter Calthorpe and William Fulton--in “The Regional City”

44 THE COMPREHENSIVE PLAN FOR MARION COUNTY, INDIANA INDIANAPOLIS INSIGHT: COMMUNITY VALUES COMPONENT THE COMPREHENSIVE PLAN FOR MARION COUNTY, INDIANA INDIANAPOLIS INSIGHT: COMMUNITY VALUES COMPONENT 45 POPULATION, HOUSING AND LAND ABSORPTION POPULATION, HOUSING AND LAND ABSORPTION Rational land use... decisions cannot be made without first understanding the demographic environment in which they will take place.

Previous plan updates focused mainly on Marion County and the needs of its population. However: increasing regional concerns are causing citizens within Marion County and the surrounding jurisdictions to realize that cooperation is necessary, to achieve regional goals. Counties within the Indianapolis Metropolitan Area include Boone, Hamilton, Hancock, Hendricks, Johnson, Madison, Marion, Morgan, and Shelby (see map, page 47).

Before the Comprehensive Plan Update began to take place, the Department of Metropolitan Development, Division of Planning contracted with an independent consultant to obtain population and employment projections to the year 2025. This section builds upon those projections and utilizes available Census 2000 information.

Current Situation and Trends

As of the 2000 Census, Marion County is still the largest county in the state of Indiana in both urbanized area and population. The county population increased from 797,159 to 860,454 persons between 1990 and 2000 (63,295 persons, 7.9% increase). This was the second largest numeric increase in population in the Indianapolis Metropolitan Statistical Area. During the same period Hamilton County (north of Marion County) increased from 108,936 to 182,740 persons (73,804 persons, 67.7% increase).

During the 1960s Marion County’s population increased rapidly from 697,567 to 792,299 persons. The 1970s brought a period of population decline, but the population rebounded during the 1980s and continued to increase through the 90’s. Marion County’s population in 2000 far exceeded that of projections from Indiana University, the State Board of Health, and even the Division of Planning.

Population Trends, 1970 to 2000

1970 1990 2000 Percent Percent Change Change 1970-2000 1990-2000 Indianapolis 1,251,400 1,385,400 1,607,496 28.5% 16.0% Metro State of 5,203,700 5,555,100 6,080,485 16.8% 9.5% Indiana United States 203,798,700 249,438,700 281,421,906 38.1% 12.8%

Source: U.S. Census Bureau

The metropolitan area has grown by about 356,096 people since 1970 when the population of the nine- county area was 1,251,400. For the three decades since 1970, the overall population growth rate has MADISON

been about 8.5 percent. HAMILTON 1990 - 130,669 BOONE 2000 - 133,358 1990 - 108,936 2,689 Increase 1990 - 38,147 2000 - 182,740 2.1% Growth Over the same 30 years, the state of Indiana’s 2000 - 46,107 73,804 Increase 7,960 Increase 67.7% Growth population increased by 16.8 percent while the 20.9% Growth national population grew 38.1 percent. In the 1990s HANCOCK alone, Indiana added 9.5 percent more residents and HENDRICKS MARION 1990 - 45,527 the U.S. as a whole added 12.8 percent. 2000 - 55,391 1990 - 75,717 1990 - 797,159 9,864 Increase 2000 - 104,093 2000 - 860,454 21.7% Growth 28,376 Increase 63,295 Increase Population by County 37.5% Growth 7.9% Growth

SHELBY Within the Indianapolis metropolitan area, Marion JOHNSON MORGAN 1990 - 40,307 County has long been the most populous of the nine 1990 - 88,109 2000 - 43,445 1990 - 55,920 2000 - 115,219 3,138 Increase counties. Its 860,454 residents represented more than 2000 - 66,689 27,110 Increase 7.8% Growth 10,769 Increase 30.8% Growth half (53.5%) of the metro area’s total population of 19.3% Growth 1,607,496 in 2000. But this proportion has declined during the past 30 years as population growth has been coupled with suburbanization of the surrounding counties. For example, in 1970, the population of Population of Selected Counties In Metropolitan Indianapolis, 1970-2000 Marion County was 793,800 or nearly two-thirds 1,800 (63.4%) of the metro area’s population of 1,251,400. 1,600 1,400 While Marion County grew 8.4 percent between 1970 1,200 �� and 2000, Hamilton County more than tripled its 1,000 �� 800 population and Johnson County added 78 percent ��

more residents. Over the same 30-year period �� 600 �� Madison County decreased by 3.6 percent. The other 400 five counties collectively increased in size by about fifty 200 percent between 1970 and 2000. 0 1970 1980 1990 2000

Households and Employment

Population and Households in Metropolitan Indianapolis, 1970-2000 The metropolitan area’s 28.5 percent population 1,800 growth between 1970 and 2000 was accompanied �� by even more rapid growth in households (defined 1,600 �� as occupied housing units) and employment (i.e., 1,400 �� 1,200 number of jobs located in the region). 1,000 800 ��

Thousands 600 The following graph illustrates that the number of �� households within the metropolitan area increased by 400 54.2 percent, about 2.5 times the rate of population 200 0 growth, because of decreasing household sizes. This is 1970 1983 2000

predominately due to the maturation of the post-World Population (up 28.5%) Households (up 36.7%) War II baby boom generation which moved out of its

46 THE COMPREHENSIVE PLAN FOR MARION COUNTY, INDIANA INDIANAPOLIS INSIGHT: COMMUNITY VALUES COMPONENT THE COMPREHENSIVE PLAN FOR MARION COUNTY, INDIANA INDIANAPOLIS INSIGHT: COMMUNITY VALUES COMPONENT 47 POPULATION, HOUSING AND LAND ABSORPTION POPULATION, HOUSING AND LAND ABSORPTION parents’ homes during the 1970s and early 1980s to create “new” households while leaving behind an existing household—albeit with fewer persons per household. Other contributing factors to this trend were higher divorce rates (effectively creating two households where there used to be one) and a greater propensity of Americans to live alone, thereby creating a larger proportion of single-person households.

The total number of households in Marion County has increased from 319,821 in 1990 to 352,164 in 2000 (32,343 households, 10.1% increase). Family households make up 60.6% of the total number.

For much the same reason as the increase in number of households, the rate of job increase was more than three times that of population between 1970 and 1998. Projections showed that employment was up 72.4%, from 587,600 in 1970 to 1,013,000 in 1998. When the baby boomers created new households, they also sought employment. The American and Indianapolis economies responded by creating jobs in unprecedented numbers. Moreover, this was a period when women entered the labor force in proportions never before experienced in peacetime, a result of broader and longer education and the opportunities for increased economic well being.

Employment is growing much more slowly at present because of the high rates of labor force employment and because there are fewer people entering the labor force in the generations after the baby boomers. The nature of contemporary work, however, is no longer as physically taxing as in decades past due to greater technology in goods producing sectors and more jobs in the services sectors. Thus, people are encouraged to remain in the labor force longer or to return to labor force after retirement. Such factors are not only helping to maintain a high rate of employment, but to increase the size of the labor force beyond historic patterns.

Diversity

In the 2000 Census, respondents could identify themselves as belonging to more than one race. Additionally, the Native Hawaiian and Other Pacific Islander population was included in the Asian category in 1990 but was listed as a separate category in 2000. These two changes have introduced some ambiguity in comparisons of race data for 1990 and 2000. The Census Bureau refers to Hispanic origin as ethnicity and expects each resident to also identify with a Hispanic or Non-Hispanic ethnicity. In 1990 it appeared that a large number of Hispanics had chosen the Other Race category, writing “Hispanic: or “Cuban” or “Puerto Rican” or “Mexican” etc. beside their choice of Other Race. In Census 2000, the ethnicity question was placed before the race question, in an effort to avoid this confusion. However, despite the change in order of questions, an outcome similar to 1990 occurred.

According to the 2000 Census, 33,290 of Marion

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County’s 860,454 residents identified themselves as having a Hispanic ethnicity. This is nearly four times the number of those who identified themselves as “Hispanic” in the 1990 Census. As mentioned earlier, it is difficult to determine the actual Hispanic population due to confusion with the Census forms. However, there is evidence to support the claim that the growth in the number of Hispanic responses may be due to actual growth in the Hispanic population. The number of Hispanic births in the state of Indiana has risen from 2,900 in 1996 to almost 4,400 in 1999, for a growth rate of 49%.

The African American population has also increased over the past ten years. Between 1990 and 2000 the number of African American residents in Marion County and the M.S.A. both increased by 23 percent. However, in Marion County African Americans comprised 26 percent of the total population whereas in the M.S.A. they were only 14 percent.

Land Absorption

Although during the 1990s Marion County’s population increased by 7.9 percent, the amount of developed acres in the county increased by 43 percent. The last update of the Marion County Comprehensive Land Use Plan stated that 147,642 acres, or 60 percent, of Marion County’s 246,070 acres was developed land. By 2000 the amount of developed land had increased to 211,330 acres, or 86 percent of the county.

The previous comprehensive plan update also stated that of the eight suburban townships, only Washington and Wayne were over 60 percent developed and that Franklin Township was the least developed at 20 percent. By 2000 Franklin had become 44 percent developed, Decatur was 63 percent, and the remaining townships were all over 85 percent developed. Washington, Wayne, and Center townships were nearly 100 percent developed.

Many factors contribute to such a rapid rate of land absorption, including a decreasing average household size, preference for larger lots, and dependence on the automobile.

Stages of Development

To illustrate how Indianapolis has grown and continues to grow, a Stages of Development map was drawn in 1990 and again in 2000. These maps show areas that were developed at roughly the same time and in similar patterns. They display how the county’s urban form ranges from an intense downtown core to established neighborhoods, to suburban and rural areas experiencing intense development pressures. Identifying the areas of Marion County that correspond to certain stages of development makes possible the strategic targeting of appropriate policies, programs, and actions.

Marion County’s seven stages of development and their characteristics are as follows:

Stage 1: The Regional Center

Property within this stage of development was initially platted and developed between 1821 and 1900. Nearly one hundred percent of the property has been developed. All community services are in place; but due to age, may need extensive repairs or added capacity to handle

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50 THE COMPREHENSIVE PLAN FOR MARION COUNTY, INDIANA INDIANAPOLIS INSIGHT: COMMUNITY VALUES COMPONENT THE COMPREHENSIVE PLAN FOR MARION COUNTY, INDIANA INDIANAPOLIS INSIGHT: COMMUNITY VALUES COMPONENT 51 POPULATION, HOUSING, AND LAND ABSORPTION POPULATION, HOUSING, AND LAND ABSORPTION redevelopment. The area has good highway capacity that meets the transportation needs except for some turns at intersections during peak commuter hours. The area contains high intensity, mixed uses, such as high rise office buildings, government centers, major retail centers and multistory apartment buildings.

Stage 2: Center City Revitalization Areas

Property within this stage of development was initially platted and developed between 1821 and 1950. A majority of this area has been completely developed; however many structures have been demolished leaving vacant lots and redevelopment and reinvestment is occurring in varying degrees. Traffic flows smoothly except for occasional peak hour decreases of the level of service at certain intersections. Infrastructure may need extensive repair or replacement due to age. Land uses include residential, commercial and industrial development that may exhibit obsolescence and deterioration.

Stage 3: Established Center City Areas

Property within this stage of development was initially platted and developed between 1821 and 1950 and is nearly totally developed. These areas tend to be stable neighborhoods with little deterioration. Roadway transportation services are acceptable except for occasional peak hour decreases of the level of service at certain intersections; however, infrastructure may need extensive repair or replacement due to age. Land uses include residential, commercial and industrial developments that are stable or experiencing restoration or reinvestment.

Stage 4: Suburban Revitalization Areas

The primary development of property within this stage of development began in approximately 1950 and some development continues today. Approximately eighty percent of the area is developed; however, disinvestment and deterioration may be present in the form of abandoned commercial buildings and deteriorating housing. Community services are available for most of the area. The majority of the area is adequately served by sanitary sewer and public water; however, the levels of service for roadways may be marginal to unacceptable for much of the area. Boundary lines between land uses are distinct and generally well defined.

Stage 5: Established Suburban Areas

The primary development of property within this stage of development began in approximately 1950 and continues today. Approximately eighty percent of the area is developed, and site improvements are in generally good to excellent condition. Community services are available for most of the area. The majority of the area is adequately served by sanitary sewer and public water; however, the levels of service for roadways may be marginal to unacceptable for much of the area. Boundary lines between land uses are distinct and generally well defined.

Stage 6: Developing Suburban Areas

The primary development of property within this stage of development began in approximately 1965 and continues today. Forty to eighty percent of the area is developed, and the development pattern does not clearly extend outward from a core area. Sanitary sewer

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and public water have not been extended to a majority of the area. The existing or projected levels of service for roadways may be marginal and the general residential roadway system is disconnected between subdivisions, producing a local street pattern that lacks continuity. Future development may be predominantly infill development, so undeveloped transitional areas between major land uses are at a critical juncture due to the development of adjacent land.

Stage 7: Rural Areas

The primary development of this area began in 1970 and continues today; however, less than forty percent of the area is developed. These areas lack sanitary sewer and public water infrastructures, but projected levels of service on roadways are acceptable. Agriculture and woodlands are the predominant land use in this stage of development; however, residential development occurs on individually developed single family tracts on road frontages or consists of widely scattered suburban-style developments.

Consequences of Continuing upon Current Trends

The amount of land absorbed every year by development depends on many different factors, including household size, density preferences, and the health of the economy. As household size decreases and average densities decrease, more land is used for development. Similarly, the health of the economy can help determine business expansion and development as well as the level of consumer spending. Therefore it is important to note that although projections can be a useful tool for decision-makers, they are not to be interpreted as absolute.

The following projections of land absorption in the nine county Indianapolis metropolitan area are based on projections of population, households, and employment. The following is projected to occur between 2000 and 2025:

Population is expected to continue to increase, but at a slower rate than in the past 10 years. It is projected to increase from 1,607,500 to 1,846,000 in the region, up 15 percent for the quarter century. This population growth between 1990 and 2000 was about 16 percent.

Households (or occupied housing units) are also projected to increase, but more rapidly than population. Continued trends in smaller average numbers of persons per household will cause the number of households to increase from 629,700 to 764,240, or 18 percent.

Employment in the metropolitan area is projected to increase from about 1,065,000 to 1,172,300, up 10 percent for the 25 years. This is slower than population growth, primarily because recent increases in employment are attributable to the large post World War II baby boom generation which will begin retiring after 2010. There are relatively fewer workers in subsequent age cohorts so the rate of job growth is expected to slow.

Although population, households, and employment will increase in the region over the next 25 years, Marion County is expected to have losses of population and employment. The County is projected to lose approximately 31,200 persons by the Year 2025. Population would decline about four percent. Employment in the county would also decline by two

percent as more jobs migrate to the increasing concentrations of labor force availability in the surrounding counties. While Marion County will remain the “largest” county in the region in terms of people, households, and jobs, it will lose some of its dominance:

• From 54 percent of the region’s population in 2000 to 45 percent in 2025; • From 56 percent of the region’s households in 2000 to 48 percent in 2025; • From 66 percent of the region’s jobs in 2000 to 58 percent in 2025.

These projections, however, are based on statistical trends. As mentioned earlier, the projections become altered when making projections about land use densities and the rate of development, which are affected by many different factors.

Land Absorption Scenarios

Based upon these projections for the metropolitan area, three broad scenarios of land use absorption over the next 25 years were created. In each case, there is more growth projected for several of Marion County’s townships than these townships can rationally be expected to absorb. The projections, therefore, assume that the “over flow” will push into adjacent counties—i.e., the geographic direction of growth is assumed to radiate outward from the center of Indianapolis, not from township to township (other than from Center Township to the eight surrounding townships).

This spill over effect would actually cause Marion County’s population growth to be lower than what is shown above and the surrounding counties would experience higher growth rates. Overall metropolitan growth is assumed to remain the same.

Listed below are three different development scenarios. The first scenario is based upon current development trends and demonstrates the community’s present course. The second and third scenarios offer descriptions of what could happen if development trends were to become altered. The three scenarios assume the following:

Current Trends

The first scenario assumes that the density of future development in each jurisdiction will be the same as that which has taken place since 1980. That is, future density will be the same as that of the 1980-to-2000 period, not of the totality of development in each jurisdiction. The net effect is that average densities will be low and land absorption will be much greater than under the other scenarios. This scenario was judged by the Department of Metropolitan Development to be the most realistic.

Central City Stabilization

A second scenario assumes that Center Township will lose no more population—that its 2000 population (167,060) will remain constant and the initially projected loss of 27,520 people between 2000 and 2025 will not happen. This would require, of course, that enough housing construction and renovation occur to encourage people to remain in Center Township. But doing so would also slow the growth of the other townships that would have happened as a

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result of out migration from Center Township. By slowing the growth of the other townships, there would also be slower growth in some of the outlying counties. The net result would be less pressure on land absorption.

Higher Density Development

This scenario assumes that all future growth and development will occur at the average density of all existing development, separately calculated and projected for each county and township. For example, household growth in the future is assumed to have the same number of households per acre, on average, as in the past. To maintain an overall average density, many areas would need to be developed at a higher density than at present.

The following table summarizes the land absorption projections of these three scenarios.

PROJECTED ACRES OF LAND IN URBAN/SUBURBAN USES, 2025

SCENARIO 1 SCENARIO 2 SCENARIO 3 County Total Existing Urban/ Current Central City Higher Acres Suburban Land Trends, Stabilization Density in 2000 Densities from 1980 to 2000 Boone 270,890 42,500 88,690 58,790 59,150 Hamilton 245,440 56,600 109,260 93,810 94,240 Hancock 196,200 19,700 38,520 22,260 22,260 Hendricks 261,480 38,030 81,430 61,770 62,250 Johnson 205,670 44,690 78,740 58,460 58,460 Madison 280,840 46,740 52,429 50,100 50,100 Marion 246,070 211,330 235,010 225,020 225,040 Morgan 261,850 35,100 61,190 45,180 45,180 Shelby 264,170 23,040 43,540 27,420 27,420 Total 2,232,610 517,730 788,930 642,810 644,100

Township Center 26,810 26,730 26,810 26,800 26,750 Decatur 20,700 13,070 19240 14,770 14,810 Franklin 26,900 11,900 20,370 14,780 14,790 Lawrence 26,830 23,790 26,830 26,830 26,830 Perry 28,670 25,590 28,670 28,180 28,200 Pike 28,200 27,390 28,200 28,200 28,200 Warren 29,900 25,520 28,010 27,440 27,440 Washington 26,510 26,190 26,510 26,490 26,490 Wayne 31,540 31,150 31,540 31,530 31,530 Total 246,060 211,330 236,180 225,020 225,040

The first scenario (the most realistic one) would have the biggest impact. Two of the Marion County townships (Pike and Lawrence) have had slightly higher densities of development since 1980 due to high demand for new development, coupled with more economical and efficient land use patterns. But the other Marion County townships and all the other counties have had generally lower densities of development since 1980. Projecting this combination of more recent densities into the future results in the need for much more urban/suburban land conversion. About 52 percent more urban/suburban land would be needed in the metro area between 2000 and 2025 (842,180 acres).

The impact on Marion County would not necessarily be dramatic, primarily because Marion County is already so developed that the most popular townships would become fully developed under any of the scenarios. A greater and faster “spillover” effect on adjacent counties, however, would contribute to the much more rapid pace of urban/suburban conversion in the outlying counties.

While the second scenario would benefit Center Township by re-occupying some underutilized land and increasing some density (particularly for more housing), the overall effect on conversion of land in Marion County to urban/suburban uses would be very small because the township is already virtually fully developed.

The resulting loss of pressure for growth in the other counties, however, would reduce the need for added urban/suburban land from 271,200 more acres to 125,080 in the M.S.A.. This would increase the amount of urban/ suburban land in the metropolitan area by about the same percentage as in Scenario 3.

The third scenario would result in some 644,100 acres in urban/ suburban uses, up from 517,710 in 2000, or the conversion of 126,370 acres from agricultural uses to urban/suburban uses (an increase of 24 percent.)

Marion County would see its

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developed land increase from 211,330 (86 percent of the county) to 225,040 acres (91 percent of the county). Lawrence, Pike, Washington, and Wayne Townships would become effectively “full” while Center Township could see a slight statistical increase in its developed acres.

These three different scenarios demonstrate that it is impossible to predict what will happen in the future. By looking at what could happen, this community and those that surround it can create an approach to development that reflects citizen values.

Listed below are several policy and planning implications from these projections:

• Transportation networks would have to greatly expand—and rapidly—to accommodate the growth of Scenario 1 while the other two scenarios may be more manageable—keeping in mind that all three scenarios accommodate the same numbers of people, households, and jobs.

• Redevelopment can reduce the pressures on growth in the other jurisdictions but even the retention of 27,520 residents in Center Township does not have a huge impact on overallgrowth projections. A far broader and regional program of redevelopment, in-fill development, and higher density development would be needed to sharply reduce the pressures on land conversion. The City of Indianapolis probably cannot, unilaterally, have a major impact on such land demands.

• The location of jobs will have a strong impact on land use demands. Typically, jobs move to the labor force—although recent changes in the economy might also have different impacts on this normal pattern. With the advent of telecommunications, some of the workforce will no longer be tied to a specific location. Jobs may move out of the center city even more quickly. At the same time, quality of life issues are having an even greater impact on job location decisions so a strong urban mix of activities could lead to further concentrations of employment in the urban center.

• Finally, Indianapolis as a city and a region will need to closely observe the preferences of households for changing life styles and community amenities. There are strong current trends toward more urban housing/downtown life styles catering to childless families, suggesting opportunities for fulfilling Scenario 2. But telecommunications technology combined with good roads and transit systems can also mean that households can choose outlying locations while still having adequate access to the activities of the Center City.

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VALUES, PRINCIPLES AND ELEMENTS

Don’t be afraid of the space between your dreams and

reality. If you can dream it you can make it so.

--Belva Davis--

The City of Indianapolis has used a balanced approach in creating this plan. Citizens were asked to dream about an ideal future, but then to set those dreams against a backdrop of demographics, technology and development markets.

In order to provide a philosophical structure to the plan, a series of value statements was adopted by the Indianapolis Insight Steering Committee. The actions and polices recommended by this plan are expected to both reflect and respect these values.

Value statements

Development of our city and county should meet the needs of the present without compromising the ability of future generations to meet their own needs.

We should strive to achieve a balance of land uses, including a diversity of housing options, throughout the various parts of the county and the region. Balanced land use is important not only for tax base equity, but also for livable communities where people can live, shop, recreate and earn a living throughout the different phases of their lives.

New developments should be well planned, well built and well maintained so that they retain their value over the long haul. Established areas should be well maintained to retain (or regain) their value and to preserve their unique identity.

Education programs of the highest quality are vital to the health and well being of this community. We should encourage all citizens, regardless of age, to participate in the learning process throughout their lives. We should offer educational programs to individuals with a wide range of talents and abilities, enabling all members of the community to develop to their fullest potential. We must ensure that educational opportunities are available to all citizens, regardless of race, sex, religion, national origin or disability. We must maintain a world class educational system, providing programs of the highest quality to all citizens.

We should strive to maintain a healthy environment and to make appropriate improvements to the current state of the environment. Of particular importance are clean air, ground and surface water, conservation of natural features including wooded areas, and adequate parks and open space.

We should continue to improve our transportation system so that it is well-connected, convenient, and safe. We should provide a variety of transportation choices so that all people regardless of age or ability can travel throughout the region. Both the transportation system and the infrastructure system should anticipate and guide growth of the metropolitan area.

We should maintain and further develop a strong, diverse economy and to make efforts to attract and retain highly skilled and educated workers. Forces of disinvestment and decline should be countered with a variety of redevelopment and reinvestment activities wherever needed to maintain the vitality of the community.

The regional center should continue as the focus of the larger scale cultural events and venues, however we should support a variety of cultural activities within all parts of the city. We should respect historic structures and neighborhoods as the physical embodiment of our history and cultural identity.

As the center of an increasingly regional metropolitan area, Indianapolis should be a leader in planning-related cooperation and communication.

Land Use Principles and Elements

Land is a commodity of considerable importance in an urban community and is considered a key resource that requires skillful management. The land use decision-making and administration processes are the methods the City of Indianapolis uses to manage this important resource, and the Comprehensive Plan is the cornerstone upon which these processes are based.

To effectively utilize the Comprehensive Plan as a land management tool, the principles of the Plan and the elements of the General Land Use Maps must be understood. Key Land Use Principles Regionalism

Local governments’ Comprehensive Plans have had to respond to changing problems and challenges, as urban centers have grown outward and matured. In recent years the citizens of the City of Indianapolis and Marion County have been engaged in public discussions and explorations of how Indianapolis will chart its future from a perspective that is increasingly regional. Indianapolis will remain the largest city in the central Indiana region; however, the rates of housing and population growth in Indianapolis have been exceeded by the rates of growth in the surrounding counties. Projections indicate that this situation will continue in the future.

Many citizens have strong interests in the vitality of several counties within the region because job, school, shopping and recreation destinations are not often found in the same municipalities or counties as their places of residence. Indiana statutes that enable local governments to establish comprehensive plans and regulate land use under zoning do not, however, mandate regional plans for land use, environmental quality, social services, parks and recreation, public safety, courts or education. Short of formal plans, central Indiana relies on informal, uncoordinated and often inconsistent regional planning efforts. While these voluntary activities benefit the community, the establishment of a more formal planning relationship in the nine county region would permit the land use coordination necessary to effectively manage difficult land use issues.

The Central Indiana economy operates on an increasingly regional scale. Marion County’s employers draw upon the labor force from a large area, a commuter shed of more than nine counties. Regions, not individual cities, are actively competing for economic development expansion and business retention. During the past decade, economic development researchers

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Additionally, natural systems do not respect the jurisdictional limits drawn by government declaration. Air currents spread air across the borders of counties, cities and towns. Watersheds collect and concentrate the drainage from urban and rural areas alike. Because of their size, amenities or physical setting, some parks and open space facilities serve the needs of an entire region. Multiple-use recreation and transportation corridors can be linked within a regional perspective.

Future plans should take into account current conditions and probable future growth within Marion County and its adjoining jurisdictions.

Balance of Land Uses

One of the objectives of land use planning is to balance the needs of a community with available resources. In practice, this balancing is often difficult to achieve. The challenges involve balancing multiple land uses with social, political, and economic goals, while striving to maintain the health and sustainability of the ecosystem. Adding to the complexity is the need to comply with natural resource regulations and to view the consequences of land use at both the local and national levels.

Initially, providing a balance of land uses involved issues of tax base equity. By forecasting the composition of a political unit, predicting the public revenue requirements based upon that forecast and providing sufficient quantities of industrial, commercial, residential uses to serve those requirements and minimize single-family residential tax rates, land uses could be considered balanced. However, while zoning and planning authority is consolidated in Indianapolis, certain vital public services such as school, police and fire protection remain segmented. As a result, 61 separate taxing districts exist. To achieve true tax base equity, land use must be “balanced” for each distinct taxing subdivision.

To further complicate the ability to balance land use, the Plan should minimize the isolation of families and individuals based on age, income, race or disability by recommending a range of residential uses to support the population. While the construction of custom homes and commercial uses catering to high-income clientele are usually not controversial, the construction of multi-family residential housing or “affordable” single-family residential developments are often controversial. Additionally, certain commercial and industrial land uses are considered objectionable due to actual or perceived negative impacts; however, these uses may exist as a result of a viable market or are necessary for a fully functioning economy. In this instance, therefore, balancing land use means equitably distributing land uses throughout the City. Finally, the impact of land use on the physical and economic environment must be considered. The possible impact of land uses on air quality, water quality, flood control, and drainage

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must be estimated and mitigated. Excessive light and noise can make otherwise compatible land uses poor neighbors. The capacity of the infrastructure needed to serve an area should be evaluated in determining the intensity of development for that area. Employment and residential areas should be balanced geographically to minimize transportation problems. The need for open space, woodlands and public recreational areas will continue to grow as the amount of available land diminishes.

Intensity of Land Use

Intensity of use refers to the level of activity associated with a land use. Generally, the higher the level of activity associated with a land use, the higher the intensity. Measures of an area’s level of activity include the number of people and vehicles that enter and exit the area; the area’s physical development; and the area’s impact on adjacent land uses as well as the impact on the sewer, water, drainage, transportation and ecological systems. In this context, the “impact” of a land use is generally associated with the negative effects on nearby land uses and the burden it places on existing systems.

Effective communities are planned and designed to function well. Ideally, a community would be built around a dense mixed-use core and radiate outward with less intensive uses. Indianapolis is fortunate to have a number of mixed-use cores throughout the city upon which to build. While the Regional Center and the “Old City” are important centers of activity, various included and excluded cities and towns also serve as important mixed-use building blocks for a vital City. While mixed-use development should be encouraged, in those instances were mixed-use is impractical the following principles of land use planning and intensities should be used to formulate the planning recommendations contained in the Comprehensive Plan:

• High intensity commercial and industrial land uses should be clustered or assembled in groups to form an activity node.

• The more traffic associated with a land use, the greater the street capacity required to serve the land use. Higher intensity land uses should be located adjacent to major roadways and lower intensity land uses can be on local streets.

• The greater the differences between the intensities of adjacent land uses, the greater amount of buffering necessary to shield the uses.

• The capacity of infrastructure needed to serve an area should be evaluated in determining the intensity of development for that area.

• Redevelopment proposals and infill development should be compatible with surrounding land uses.

To provide recommendations that are consistent with the requirements of state law, reflect the values of the community and address the complex issues identified during the update process, five distinct elements must be considered when making a recommendation on a proposed land use. These elements are small area plan overlays, the primary land use recommendation, secondary land use recommendation, indexing, and critical areas.

Small Area Plan Overlay

In certain instances, a sub-area, neighborhood or corridor plan exists which must be referenced in order to ascertain the primary land use recommendation. In order to avoid unnecessary duplications or contradictory recommendations, the General Land Use Maps will contain no land use recommendation for these areas. The small area plans are more detailed studies of the affected area and will contain a detailed analysis of the area in question and proposed land use and zoning maps.

It should be noted that during the update process, all small area plans were evaluated for continued applicability. In the event that a small area plan exists for an area, but is not included on the Small Area Plan Overlay, it was determined that significant changes to the area had rendered the land use recommendations of the plan obsolete. In those cases, the small area plan can be referenced for appropriate detail, but the land use recommendations of the General Land Use Maps supercede the land use and zoning recommendations of the small area plan.

Additionally, small area plans will continue to be adopted as updates to the Comprehensive Plan subsequent to the adoption of this document and the General Land Use Maps. In these instances, the primary land use recommendation of the small area plan would supercede the recommendation of the General Land Use Map; however, any secondary land use recommendation should be incorporated into recommendations on land use petitions.

Primary Land Use Categories

Primary land use categories broadly define development by density range and/or use, and should be considered the most appropriate use for the land. In the application of these recommendations for land use decisions, these recommendations provide the starting point for a determination of the appropriateness of a land use request. While the Plan anticipates that the current local conditions, the character of existing structures and uses, the most desirable use for the property, the conservation of property values, and the tenets of responsible development and growth will also be evaluated during the decision-making process, the recommended land use provides the basis for the evaluation of these factors. The Plan also anticipates that the impacts of any deviation from the recommendation of the Plan would be comparable to the typical impacts of the primary land use recommendation.

The most appropriate primary land use category is recommended for each area on the map. Because the Comprehensive Plan assumes that Marion County will be fully developed, the

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Plan’s recommendations cover every parcel of land in the county either thorough the General Land Use Map or the appropriate small area plan.

The following categories are used to designate primary land use recommendations on the land use plan maps:

RESIDENTIAL Residential Development greater than 0.00 and equal to or less than 1.75 units per acre. Residential Development greater than 1.75 and equal to or less than 3.50 units per acre Residential Development greater than 3.50 and equal to or less than 5.00 units per acre. Residential Development greater than 5.00 and equal to or less than 8.00 units per acre. Residential Development greater than 8.00 and equal to or less than 15.00 units per acre. Residential Development greater than 15.00 units per acre.

COMMERCIAL PARKS Office Commercial Uses Park Community Commercial Uses Linear Park Regional Commercial Uses Heavy Commercial SPECIAL USE Special Use INDUSTRIAL Floodway Light Industrial General Industrial

MIXED USE Urban Mixed-Use Village Mixed-Use Further description of these categories may be Airport Related Mixed-Use found in Appendix C: Land Use Categories.

Secondary Land Use Categories

Secondary land use categories designate areas where some characteristic of the site has a modifying effect on the primary land use, so that the two uses (both primary and secondary) should be considered together in making land use decisions for the site. Secondary land use categories can be used to identify and preserve the character of land possessing special environmental, natural or historical characteristics. Careful attention should be given to the secondary land use recommendation in regard to development proposals.

In this plan, one secondary land use category has been designated: Environmentally Sensitive. Steeply sloped areas, aquifers or other waterbody resources, and significant stands of old- growth forest are examples of site characteristics subject to this designation.

Indexing

Another key element of the Comprehensive Plan is the use of an indexing system. Indexing is a method of numerically assigning an alternate land use recommendation to an area. Where the Comprehensive Plan uses indexing, the primary recommendation is identified by a color and the alternate land use recommendation by the index number. Indexing is most often used in those areas where the primary land use recommendation requires some public expenditure for implementation; for example, the acquisition of park land.

The primary land use recommendation represents the most appropriate and acceptable use for an area. The alternate land use is considered less appropriate than the primary land use. Unless it is clearly demonstrated to the Metropolitan Development Commission or Board of Zoning Appeals that development of the alternate recommendation would adequately protect the major features of the primary recommendation, the alternate use should be deemed inappropriate. However, the City may not use the Plan’s recommendations or zoning as a tool to take private land.

Critical Areas

The Comprehensive Plan also designates critical areas. Each critical area exhibits an unusual character, important location, or significant infrastructure need that warrants a high degree of scrutiny. Critical area recommendations address significant land use issues that require more detailed information than that shown on the General Land Use Maps. The critical area text documents and explains why a certain area is considered critical and presents additional information about the area. The Metropolitan Development Commission and Board of Zoning Appeals should use this information to make decisions on land use petitions filed on or near these locations.

Critical areas should experience the greatest development or redevelopment pressure and become key elements in the Plan’s implementation. While most critical areas consist of vacant property, vacancy is not an essential element. These areas are found in all seven stages of development; however, most critical areas are in the rapidly developing portions of Marion County, especially Stage 6, because the land use patterns and resulting transition lines in those areas are currently being formed.

Goals and Recommendations

The following goals and recommendations focus on guiding land use decisions. Tables of recommendations follow the goal statements. The recommendation tables are divided into three sections for ease of reference. The first section looks at issues pertaining to the environment, infrastructure and transportation. The second section looks at issues that are manifested at a county-wide level such as those pertaining to the economy, social and cultural concerns and Marion County’s relationships with surrounding jurisdictions. The third section looks at issues that are typically manifested on a neighborhood level, although they may occur in many locations around the County. These issues typically involve housing, redevelopment or strengthening of community based organizations.

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Recommendations for ordinance changes and revisions to planning and zoning procedures related to land use may be found in Chapter Nine: Implementation of the Comprehensive Plan. It expresses the land use goals of this plan and explains the principles underlying the land use plan recommendations.

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LAND USE

“Long-range Planning does not deal with future decisions,

but with the future of present decisions.”

--Peter F. Drucker, management consultant and writer--

for Marion County has, over the years, primarily been a map or series of maps, showing recommended land uses with enough accompanying text to provide a better understanding of the maps. However, Indiana State law encourages jurisdictions to create comprehensive plans that best meet the needs of the jurisdiction. This plan moves beyond only making land use recommendations to suggesting improved methods (ordinances, policies, and procedures) to implement the land use recommendations. The plan also makes recommendations on topics that have not traditionally been found in Marion County’s land use plans. These topics are also important to citizens and neighborhoods because they support the physical development and redevelopment of the City.

This chapter focuses on what uses will be made of the various parts of the Indianapolis landscape. It expresses the land use goals of this plan and sets forth the standards on which the land use recommendations were based.

Land Use Goals

• Specify land use categories and critical areas to reduce interpretive errors, eliminate the destruction of environmentally-sensitive areas, conserve natural resources and project appropriate land use intensities based on the capacities of supporting or planned infrastructure.

• Integrate transportation system planning with land use development strategies to increase industry access to local, domestic and international business markets.

• Promote an appropriate level of land use regulation to encourage the expansion of business and industry while ensuring compatibility with existing or proposed neighborhoods.

• Designate land sites and provide infrastructure to encourage growth in the industry clusters that can be demonstrated as current or probable future strengths of the city.

• Minimize deviations from adopted land use plans by providing the City-County Council, Metropolitan Development Commission, and the Board of Zoning Appeals with appropriate guidelines for making land use decisions.

• Reflect regional land uses and development patterns in Marion County’s land use plan.

• Provide all Marion County residents, whether in established or developing neighborhoods, a variety of convenient parks and greenways.

• Protect existing parks and greenways from encroachment.

• Develop new venues for arts and cultural activities throughout the city.

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• Build an adequate supply of public schools to accommodate children from new housing developments.

• Provide accessible health care.

• Develop a range of housing types, for owners and renters of all income levels in each township, to support the diverse need for housing in our community and to encourage homeownership.

• Incorporate a mix of uses where applicable, in the planning, design, development, and/or redevelopment of neighborhoods, support multi- accessible amenities such as neighborhood shopping, schools, libraries, parks and quality employment.

• Clean up and reuse areas with environmental contamination and clarify the status of areas perceived to have environmental contamination.

LAND USE Environmental/Infrastructure/Transportation Issues

Recommendations Responsible Comments parties

Encourage property owners to preserve their land Department of in its natural state for its beauty and to provide a Metropolitan habitat for wildlife. Development (DMD), Also Private Land Trust, Department of Parks and Recreation (DPR), Property Owners

Assemble and preserve lands and corridors for DMD, DPR, Also Regional parks serve regional scale parks, open space, recreation needs Private Land a larger population and natural areas. Trust other base, require larger towns, cities and contiguous land areas counties in the and may require multi- region county support.

Promote the reuse of brownfields as open space and DMD, DPR green space.

LAND USE Environmental/Infrastructure/Transportation Issues

Recommendations Responsible Comments parties

Provide linkages for parks and recreation areas in the DMD, While many park region using trails, greenways, pathways and bike Metropolitan and recreation routes. These linkages should serve both recreational Planning needs are met near needs and as transportation alternatives. Organization people’s homes, some (MPO), DPR, recreational services other towns, and facilities are cities and geared to a regional counties in the scale. Some popular region local recreation services and facilities can be linked by trails and greenways and be accessible to citizens in several jurisdictions.

Strongly discourage use of parkland for non-park DPR, DMD purposes; any taking of parkland should be at market value, as a direct purchase, lease arrangement or trade for similar land in the vicinity.

Promote use of the cluster option available in the DMD, DPR, Dwelling District Zoning Ordinance as a valuable tool environmental for preservation of woodlands. organizations, neighborhood assocs.

Develop agricultural zoning and farmland protection Other land Marion County could tools for the region. Indianapolis-Marion County is use planning be a “receiving area” expected to become fully urbanized. agencies in if “development region, Also, rights transfers” ever Land Trusts become a regional with Farmland growth management Protection Goals tool. “Sending areas” would be areas planned for agricultural land uses within the surrounding counties.

Encourage brownfield redevelopment through Brownfield the development and implementation of financial Coordinator incentives to address barriers to redevelopment.

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LAND USE Environmental/Infrastructure/Transportation Issues

Recommendations Responsible Comments parties

Closely coordinate future land use planning with DMD, MPO, Work toward greater transportation systems plans. IndyGo transportation options over time.

Use land use controls and thoroughfare DMD, enhancement to channel high volume traffic away Department of from neighborhoods. Public Works (DPW)

Preserve rights-of-way for future regional public DMD, MPO transportation.

Preserve existing rail rights-of-way and identify those DMD, MPO that should be reserved for future mass transit use.

Identify and prioritize areas requiring infrastructure DMD, DPW improvements in the following categories: roadways, sanitary sewer, storm sewer, water and high-speed cable transmission.

Consult the Central Indiana Regional Citizens DMD See Appendix B League’s 7 Point Transportation and Land Use Vision Plan as valuable principles for land use planning.

Utilize growth management principles in deploying MPO new infrastructure.

Determine land, roadway and utility requirements City, for enterprises, such as research and development, Utilities, which promote advanced manufacturing, Indy Partnership marketable internet applications, bio-tech innovations or cargo distribution (specifically by air, ground and rail transportation) to enhance or create a “critical mass” of these and other industries in the City.

LAND USE County Level Issues

Recommendations Responsible Comments parties

Provide an appropriate range of zoning options DMD, MCANA within the land use categories.

Designate sufficient quantities of industrial, DMD, commercial, institutional and residential (both single- Marion County family and multi-family) land uses within the various Alliance of taxing districts, in order to provide a balanced tax Neighborhood base and remediate the effects of non-taxed public, Associations semi-public and special uses. (MCANA), Chamber of Commerce

Use inter-local agreements to ensure compatible DMD land use plans and procedures on jurisdiction borders. Determine “border impact” areas where inter-local coordination is essential.

Build new fire and police stations to serve growing Indianapolis United States Fire areas, to maintain a maximum of four-minute Police Administration response time. Department recommends a (IPD), Marion response time of 4 County Sheriff’s minutes and a 1.5 mile Department radius. (MCSD), Department of Public Safety (DPS), All fire depts.

Develop satellite health care centers within the Community Health care centers community. centers of can be successfully Indianapolis. integrated into (CCI), Health community centers, & Hospital churches and schools Corporation through community of Marion partnerships. County (HHMC), foundations churches, health care providers federal & state government

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LAND USE Neighborhood Level Issues

Recommendations Responsible Comments parties

Discourage residential land uses in highway DMD and interchange areas, rail yards, airports, inter-modal other land terminals and place these land uses where noise, use planning traffic and light conflicts are lessened. agencies in region

Investigate the potential public impediments to DMD non-profit and for-profit redevelopment efforts and reduce these where practical.

Continue to redevelop blighted and deteriorating DMD areas proactively and in partnerships among the City, local non-profit developers, neighborhood associations, community centers and for-profit developers.

Provide flexible zoning districts and procedures to DMD Land use maps should attract new uses for obsolete structures and sites. provide for new mixed- Consider a planned unit development approach for use areas. the special needs of redevelopment projects.

Return relatively new but, large vacant or under-used Indy Partnership, These areas are often structures and the land they sit on to productive use utility called greyfields. They and the generation of tax revenues. companies, are frequently large DMD retail spaces fronted by large “fields” of gray asphalt parking lots.

Consider the development of new “mixed income DMD Older shopping and use neighborhoods” on underutilized land, centers may be large including large retail sites and shopping centers that enough to be “resized” are now obsolete. for smaller scale retail while allowing residential uses on the remainder. Starting with a large parcel under single ownership is an advantage.

LAND USE Neighborhood Level Issues

Recommendations Responsible Comments parties

Allow multiple story or higher density retail DMD development to fit new retail to existing lots.

Preserve the city’s stock of affordable housing; DMD and Some housing existing housing for the elderly and special needs Community types may be persons is frequently convenient to relevant personal Development especially good fits services and should be preserved as such. Corporations for redevelopment (CDCs) areas where shopping, transit and other services are existing or improving.

Mapping Standards

Delineating the land use recommendation maps is one of the most important tasks involved in developing a comprehensive plan. A series of standards was developed to facilitate the delineation by providing consistency and reminding the delineators of the wide range of considerations they must keep in mind as they did their work. The following list of mapping standards represents the work of the Issue Committees as informed by the direction of the Steering Committee and principles of good planning

MAPPING STANDARDS

Standards: Justification

When developing the recommended land use maps for Marion County:

identify critical groundwater resource areas Protection of drinking water supply

recommend land uses in wellfields that have less Protection of drinking water supply pollution potential uses such as parks, open space, residences, and office development

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MAPPING STANDARDS

Standards: Justification

When developing the recommended land use maps for Marion County:

identify natural features that provide for clean To raise level of awareness of these water benefits, i.e. wetlands (natural and attributes constructed), forested tracts , ravines, and feeder streams or headwater areas

propose land uses that are likely to have the least To decrease the risk of flooding within each impact on increasing flooding and are likely to watershed and to minimize damages when be the least impacted by flooding within the flooding occurs. floodplains

Native forest fragments, riparian corridors, stands Preservation of trees is in the public interest of native trees, wooded wetlands and important because of their function in reducing air urban and pioneer woodlands should be depicted pollution through absorption of carbon as Environmentally Sensitive Areas. The City of dioxide and gaseous pollutants and the Ann Arbor, MI’s “Guidelines for the Protection and filtering of particulates, modifying extremes Mitigation of Natural Features” is a good example of noise, temperature and humidity, of the system proposed. protecting against soil erosion by catching and holding precipitation in both the leaves and root systems, preserving water quality through absorption of nitrogen and filtering of nutrients, sediments and pollutants and cooling of streamwater in summer, providing wildlife habitats and areas for recreation and offering economic and aesthetic benefits.

Coordinate with the Thoroughfare Plan. Combines the objectives of minimizing deviations from the land use plan and maintaining an acceptable “level-of- service” on thoroughfares.

Realize the inter-relationship of land use planning Certain land development options depend and alternatives to single occupancy vehicles. upon higher densities, pedestrian scale If single occupancy vehicles are relied upon and less land devoted to automobile exclusively, land development must include parking. sufficient parking and will tend to be at lower densities. Mass transit will not be as effective in these cases.

MAPPING STANDARDS

Standards: Justification

When developing the recommended land use maps for Marion County:

Recommend residential densities greater than 3.5 Provides a stepped transition from high units per acre for areas near concentrations of intensity land uses to lower intensity land employment or near major commercial centers. uses and provides more persons with walking/bicycling options.

recommend residential densities in the 5 to 8 units Provides great enough densities for a per acre category or greater for areas on bus functional bus system. routes.

recommend residential densities in the 8 to 15 Provides great enough densities for a units per acre category or greater for areas near functional light rail system. proposed light rail stations.

note the need for transportation corridor plans that extend over county lines.

provide sites for inter-modal transportation transfer facilities, including park and ride locations.

develop stream valleys and transportation corridors Note the cost and difficulties in for multiple use (utility, recreation) purposes. reestablishing single ownership and access when existing rail corridors are abandoned.

recognize the regional impact of the Indianapolis New airport related development would International Airport, make the most of air related likely be in large-scale projects, requiring cargo and passenger opportunities. Promote the overall master plans. These projects coordination of land use and zoning policies with may straddle governmental boundaries, Marion County, Hendricks County, Morgan County, but need to be uniformly planned and Plainfield and Mooresville to ensure compatible developed. Development standards land uses in lands near the airport. should not vary because of jurisdictional boundaries. Opportunities for competitive and efficient development projects should not be compromised when they may include more than one local government.

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MAPPING STANDARDS

Standards: Justification

When developing the recommended land use maps for Marion County:

recognize the probability of the expansion of the Indianapolis International Airport (midfield terminal, third runway and additional cargo distribution sites).

ensure that land use recommendations are As an example, locating very low-density consistent with the anticipated capacity of residential recommendations along supporting infrastructure. primary arterials is not appropriate.

use the concept of Critical Areas as established in Critical areas along Marion County edges the 1990-1993 plan; critical areas should be used may need thoughtful coordination among sparingly to retain the “specialness” that is their localities. value.

make certain that targeted business clusters can Various economic development, be sited in mutually supportive locations. academic and business groups should be consulted to ensure that land use codes will allow businesses to locate in the same building or complex.

recommend development of mixed-use One advantage of this is that it will allow communities throughout the region from alternate forms of transportation such as redevelopment areas to greenfields. transit, walking or biking, reducing the number and length of automobile trips.

consult the adopted plans of neighboring planning jurisdictions when preparing updates to the Marion County Plan. Deal with conflicts of land use types near edges with Marion County.

recommend a mix of land uses, including a mix of residential uses, that provides for a healthy tax base for the various taxing bodies.

MAPPING STANDARDS

Standards: Justification

When developing the recommended land use maps for Marion County:

provide transition of uses between residential areas and more intense uses. Office, service-related commercial uses, and multi-family residential should be used to transition between single-family residential, school, and religious uses and more intense land uses.

look for rational boundaries inside which non- Redevelopment areas are more likely to residential land uses have room to grow. Do not have residences located very close by, sacrifice stable residential areas. with predictable conflicts.

provide reasonable and effective growth areas Established employers may need around major employment centers. Establish assistance in keeping their facilities sufficient room for viable business areas to expand. attractive and competitive. Examples: Compare existing land use plans with zoning. See more employee parking, larger when isolated residential uses may deter business maneuvering areas for trucks, loading, expansions. better space arrangements for modern business methods.

recognize the needs for a strong regional business, Emphasize the benefits of having multiple social and cultural center as well as modern well- site location options for office, research, planned suburban employment centers. industry and warehouse-distribution facilities in the region.

consider public safety impacts. Traffic congestion can impede response time. Access can be a problem for emergency services along some trails as well as the layout of some subdivisions.

use the parks-to-population standard set forth in “Pathways to the Future” represents “Pathways to the Future, the Indianapolis-Marion an extensive public planning process County Parks, Recreation and Open Space Plan” or and adoption by the Board of Parks updates of this plan. At this time the standard is 17.3 and Recreation and the Metropolitan acres of parkland for every 1000 persons of actual Development Commission. This standard or projected population. should be applied at a sub-township level.

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MAPPING STANDARDS

Standards: Justification

When developing the recommended land use maps for Marion County:

provide a park within 1 mile of each residential Each neighborhood should expect to development. have a park within convenient walking or bicycling distance.

use the updated Indianapolis Greenways Plan as The updated Indianapolis Greenways Plan the basis for the Linear Park designations. Additions represents an extensive public planning to the updated plan can be included to provide process and adoption by the Board of improve connections among neighborhoods, parks Parks and Recreation and the Metropolitan and community amenities through a variety of Development Commission. path, trail and sidewalk options.

coordinate with the Indianapolis Regional Bicycle and Pedestrian Plan.

provide greenways links through jurisdictional This is a land use that can serve to borders. complement other land uses with improved access, and serve as a buffer or transitional area between certain less compatible land uses.

distribute community assets and services A balance of land uses is beneficial for the throughout Indianapolis. There should be a broad tax base. array of community services in each part of the community, including social services, recreation, childcare, and similar assets community/ intergenerational centers.

ensure that all existing or proposed interstate Examples of new interchanges: interchanges will be developed for high value, New I-70/Six Points Road (airport area) highway oriented land uses. Insist on land Possible German Church Rd/I-70 (Marion development that provides strong tax base and job County) potentials. Possible I-65/ County Road 750 North (Johnson County)

MAPPING STANDARDS

Standards: Justification

When developing the recommended land use maps for Marion County:

large tracts of undeveloped land near interstate Interstate interchanges are appropriate interchanges and transit stops should be locations for park and ride facilities and reserved for mixed-use industrial and commercial industrial/commercial developments. development. Noise concerns with the interstate dictates limiting residential development.

propose appropriate land uses along an interstate The proposed Interstate 69 extension has route to the southwest, in the event a final corridor the potential of opening several markets. is designated. Potential land uses should not interfere with the extension and operation of this interstate.

identify areas with a concentration of the arts as Creating arts districts improves the Arts Districts. economic base of Indianapolis by generating tourism and enhancing the community.

recognize the difficult siting problems for new Many necessary structures and facilities are communications & utility infrastructure and solid unpopular. It is best to make the best use waste disposal facilities. These facilities must be of existing rights-of-way for linear facilities. constructed to meet growing demands in all Make the maximum use of solid waste central Indiana. facilities by recycling, waste reductions, and landfill management.

develop the land use plan to include a variety of housing types and densities in redevelopment areas.

identify areas with established architectural and New development that respects its historic historic qualities where potential overlay districts settings can enhance preservation and can bolster preservation and restoration. restoration of existing structures.

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MAPPING STANDARDS

Standards: Justification

When developing the recommended land use maps for Marion County:

identify areas with a cohesive character for similar Areas that may not meet historic district overlay zoning even if these areas do not meet standards may still have qualities that historic district standards. may be adversely affected by new development that does not respect the established setting.

recognize that incremental conversion of residential properties to commercial uses along major corridors create commercial strips that often negatively impact adjacent properties and neighborhoods.

note that many older retail outlets and lots do not Example: Many original convenience fulfill contemporary marketing practices. Land may stores (1970-80’s) were built in remodeled need to be reassembled in some cases to meet gas stations. New C-stores are often much these requirements. larger and are purpose-built. Lot depths and widths for modern retail may conflict with the typical lot sizes for older stores. The new sites may not accommodate more modern food retailing practices, with drive- up windows and parking spaces that do not conflict with gas dispensing.

designate no less than 50 contiguous acres, Nurture the strengths of Indianapolis and preferably an existing brownfield in an older create a brownfield redevelopment in suburban area in proximity to the downtown Indianapolis as a model public-private area, to promote the attraction or expansion of cooperation effort. information technology, advanced manufacturing and life science industries.

delineate a suitable amount of property in proximity IUPUI should be nurtured to ensure that it to IUPUI, in order to provide adequate area for becomes a high-quality post-secondary expansion, while promoting an aesthetically education establishment. pleasing campus.

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DEVELOPMENT METHODS

“Growth is inevitable and desirable, but destruction of

community character is not. The question is not whether

your part of the world is going to change. The question

is how.”

--Edward T. McMahon, The Conservation Fund--

refer to the ways various land uses are implemented. Following are goals and recommendations made by the various Indianapolis Insight Issue Committees that suggest improved methods for putting together the physical attributes of the City.

The recommendation are divided into three sections for ease of reference. The first section looks at issues pertaining to the environment, infrastructure and transportation. The second section looks at issues that are manifested at a county-wide level such as those pertaining to the economy, social and cultural concerns and Marion County’s relationships with surrounding jurisdictions. The third section looks at issues that are typically manifested on a neighborhood level, although they may occur in many locations around the County. These issues typically involve housing, redevelopment or strengthening of community based organizations.

Development Methods Goals

• Develop the city in a manner that does not threaten the underground supply of drinking water or unduly contributes to flooding or diminished surface water quality

• Develop the city in a manner that does not unduly contribute to diminished air quality and, where possible, retrofit the form of the city to improve air quality.

• Reserve quality open space as habitats for plants and animals and for the well- being and quality-of-life of the city’s citizens.

• Take full advantage of the positive impacts of trees on the urban environment by conserving existing trees and planting new trees.

• Provide protections from excessive light and noise; set standards for aesthetics to avoid “visual pollution”.

• Maximize the performance and long-term viability of the current thoroughfare system.

• Improve pedestrian mobility.

• Use transportation and infrastructure improvements to enhance the quality of life by providing transportation choices that enhance both individual and community mobility.

• Discourage or prevent the encroachment of incompatible uses into each other; be

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open to appropriate ways to mix and mesh more compatible uses.

• Preserve the integrity of neighborhoods in the development of transportation and infrastructure.

DEVELOPMENT METHODS Environmental/Infrastructure/Transportation Issues

Recommendations Responsible Comments parties

Encourage development practices that protect DMD,DPR Environmental amenities existing natural features/assets, promote Environmental such as streams, innovative land use designs and focus on Organizations wetlands, wooded sustainable natural systems. areas, and open space can be preserved for the residents/customers/ employees of the development to enjoy.

Support the proposed amendments to DPW Stormwater Design and Construction Specifications Manual to require control of stormwater runoff quality based on management of total suspended solids through the use of Best Management Practices (BMPs).

Amend state law to allow municipalities to ban DMD, HHMC Although DMD can new non-residential construction utilizing septic suggest such legislation, systems. it is in the control of the State legislature to propose, hear and enact legislation.

Within the City’s overall redevelopment program, DMD, MIBOR Tax delinquent provide special marketing of properties in properties may be a wellfields for redevelopment with non- or less- good place to start. polluting industry.

Continue the review of new business DMD, DPW This is done through development in wellfield protection areas for the review of the TQP wellfield protection measures as required by the (Technically Qualified Wellfield Protection Zoning Ordinance. Person).

Emphasize brownfield clean-up and DMD, DPW New land uses should redevelopment in wellfields within the City’s not be those with a overall brownfield program. risk of groundwater contamination.

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DEVELOPMENT METHODS Environmental/Infrastructure/Transportation Issues

Recommendations Responsible Comments parties

Develop programs to identify and work to City Forester, DPR, conserve street trees and notable specimen DMD trees.

Determine the appropriate agency to work DMD, DPW This is important for on issues concerning conservation of topsoil in stormwater percolation, new developments instead of current, common which contributes practice of scraping and selling topsoil during to aquifer recharge, development of a parcel. reduced run-off and more easily maintained turf (less watering, less chemicals).

Encourage the redevelopment of existing DMD, other cities, cities and towns in the region. This will reduce towns and county development pressures on rural areas. planning agencies

Encourage more interconnections of DMD, DPW, other Sidewalks are needed communities in the region with bicycle trails, planning and along all types of pedestrian sidewalks and pathways. public works streets and highways agencies in region (except limited access- freeways).

Within the Thoroughfare Plan, establish standards MPO This includes for the visual appearance of thoroughfares. landscaping, signage, and lighting.

Restore utility rights-of-way and public ways to Utilities their natural plant community as appropriate.

Provide for connectivity between various modes DPW, IndyGo, of public transportation. MPO

Provide sidewalk, multipurpose paths and other MPO, DPW pedestrian mobility infrastructure to improve access to all public transportation.

DEVELOPMENT METHODS Environmental/Infrastructure/Transportation Issues

Recommendations Responsible Comments parties

Retrofit existing neighborhoods with sidewalks DMD, DPW, DPR or multipurpose paths where appropriate and and MPO wanted.

Provide sidewalks or multi-purpose paths on DPW, MPO arterial streets that currently do not have sidewalks as part of significant roadway projects (widening, full depth resurfacing).

Increase development of multipurpose paths as DPR, DPW, Convenient locations for part of roadway projects. Neighborhood recreation can increase Associations the likelihood that sedentary people will become active.

Use utility rights-of-way for multi-modal paths. DPR

Improve paramobility in the city’s transportation DMD, DPW, DPR Paramobility = systems. and MPO accessible to persons with disabilities

Establish safe pedestrian crossings at DPW intersections.

Implement traffic calming standards for new DPW neighborhoods and, where feasible, for existing neighborhoods.

Maximize the use of interior access or frontage DMD, DPW roads, pedestrian connectivity and other accessibility features to minimize traffic congestion on thoroughfares.

Minimize curb cuts on thoroughfares. DPW

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DEVELOPMENT METHODS County Level Issues

Recommendations Responsible Comments Parties

Preserve the character of our community and DMD, Subarea plans and the city’s cultural legacy ranging from its ordinary Neighborhood historic districts are neighborhoods to its well-known landmarks. Groups, City- examples of tools that Strive to reduce barriers to preservation. As County Council can preserve character. appropriate, offer incentives for rehabilitating and adapting historic buildings for new uses.

Capitalize on the potential of public projects DMD, DPW, Projects should consider to serve as symbols of the city, or to express the Libraries, their impact on the identity and special character of the area where Universities, community, respect the they are located. Public projects should exhibit Schools, Hospitals, surrounding context, excellence in urban design and architecture. etc. use local building and landscaping materials, emphasize conservation, and draw on the region’s cultural heritage; enhance accessibility; and integrate art into the design of the project.

DEVELOPMENT METHODS Neighborhood Level Issues

Recommendations Responsible Comments Parties

Enhance unique characteristics that identify Neighborhoods, Architectural signage, neighborhoods and create a sense of place. Home Owners plaques, street furniture, Associations trees, and flower (HOAs), Keep plantings should be used Indianapolis to enhance gateways Beautiful (KIB), within a neighborhood. Developers, United Way

Develop commercial uses that are appropriately DMD, Developers designed and scaled to a pedestrian friendly neighborhood.

DEVELOPMENT METHODS Neighborhood Level Issues

Recommendations Responsible Comments Parties

Use landscaping, lighting, traffic calming, DMD, DPW, Reference Indiana pedestrian mobility and other features CDCs, Business Coalition of Outdoor to preserve and enhance neighborhood associations Lighting Education commercial areas.

Use the best of “New Urbanism” concepts to DMD Some “New Urbanism” keep housing conveniently located to retail, principles may require offices, personal services and employment zoning ordinance opportunities. changes for land uses, urban design and architectural standards.

Foster public life throughout the city by Developers, HOA, City owned vacant lots incorporating a variety of open spaces and Neighborhood within neighborhoods community gardens into neighborhoods. These Assoc. may be available for areas can function as “public living rooms” for use. informal gathering and recreation.

Capitalize on opportunities for promoting DMD, DPR Assist Neighborhoods in community identity through the design of street writing and applying for space. Preserving, or encouraging among grants. other things: street furnishings that reflect the ethnic heritage or architectural character of the surrounding neighborhood; artworks and markers commemorating important events or individuals; details that can reinforce community identity and authenticity such as light standards, street name markers, stone curbing or cobblestone paving or types of street trees; space for landscaping projects, etc.

Reduce disinvestment and the perception of DMD, Some examples of ways crime by improving the visual image of the area. Neighborhood to improve the visual Assoc., IPD, MCSD image are, reducing signage, eliminating litter and graffiti, and providing venues for artistic murals.

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DEVELOPMENT METHODS Neighborhood Level Issues

Recommendations Responsible Comments Parties

Encourage the use of the “Main Street” model for State Main Street Meeting the as many retail districts as possible. and National Main requirements of this Street programs program will insure that an area is organized and ready for retail redevelopment.

Revise policies regarding targets of incentives to Blighting and include all older suburban areas, not just those disinvestment is now within the pre-Unigov corporate limits. occurring in areas outside the “Old City”.

Make maximum use of public transit and DMD, MPO, Redevelopment sites alternative modes of transportation in IndyGo may be more likely redevelopment plans. Coordinate site planning than “greenfield” sites to increase the convenience of transit riders, to already have mass bicyclists and pedestrians. transit nearby.

Encourage the re-use of existing housing stock DMD, Historic for historical identity, neighborhood stability, and Urban affordability. Neighborhoods of Indianapolis (HUNI), Historic Landmarks Foundation of Indiana (HLFI), MIBOR, MCANA

Using neighborhood plans, corridor plans and DMD Target development plans for historic districts, identify properties that and redevelopment in are vacant, obsolete or substandard and can be areas that are served eligible for tax abatement or other incentives. with all City services.

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SUPPORTING ISSUES

“A community has to have the capacity to envision a future

they want, and not just the one they are likely to get.”

--Unknown--

and recommendations in this section are not about the use of land or how that land is developed. However, these goals and objectives do have an impact on the form of the city or the mission of the Department of Metropolitan Development. They may address planning or zoning procedures, housing and neighborhoods, or how people relate to the city.

The recommendation tables that follow the goal statements are divided into three sections for ease of reference. The first section looks at issues pertaining to the environment, infrastructure and transportation. The second section looks at issues that are manifested at a county-wide level such as those pertaining to the economy, social and cultural concerns and Marion County’s relationships with surrounding jurisdictions. The third section looks at issues that are typically manifested on a neighborhood level, although they may occur in many locations around the County. These issues typically involve housing, redevelopment or strengthening of community based organizations.

Recommendations for ordinance changes and revisions to planning and zoning procedures related to land use may be found in Chapter Seven: Implementation of the Comprehensive Plan. It expresses the land use goals of this plan and explains the principles underlying the land use plan recommendations.

Supporting Issues Goals

• Continue the regional planning conversation beyond the confines of the Marion County Comprehensive Plan Update.

• Work cooperatively as a region to improve water and air quality, maintain a vibrant regional economy, coordinate public and private infrastructure planning, and meet very large-scale park and recreation needs.

• Develop Indianapolis as the cultural center of the region.

• Improve infrastructure, manage demand and maximize use of the existing infrastructure.

• Provide for an efficient, non-polluting, quiet, and affordable transportation network that provides access for all citizens to and from all areas of the metropolitan region.

• Develop cultural resources to promote and attract employers, trade and tourism to Indianapolis.

• Maintain and celebrate the tradition and diversity of all citizens, and provide residents and visitors with a vibrant and inclusive community.

• Support and nurture an environment where all citizens are linked within the social fabric of their community, They can develop strength of character, share

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their faith traditions, and discuss ways in which their faith traditions can positively impact community life.

• Establish effective tools to strengthen existing housing, retailing, commercial uses, industries, and cultural facilities within redevelopment areas and to encourage new investment in those areas experiencing disinvestment.

• Refine existing city codes and procedures to make efficient use of public, private for-profit and non-profit resources for redevelopment.

• Value and support a full array of arts, artists, and arts organizations for their ability to entertain and to enrich the lives of their audiences by encouraging life- long learning through arts and culture.

• Encourage each neighborhood to identify, promote and maintain its own unique identity.

• Improve the environmental health of neighborhoods.

• Strengthen all citizens by providing opportunities for economic self-sufficiency, strong, safe, and nurturing neighborhood environments, and linkages to positive community services.

• Eliminate educational barriers and promote and encourage life-long education opportunities for all citizens.

• Ensure public safety by providing high quality fire and police protection.

• Establish the opportunity for every citizen in Indianapolis to live in safe and decent housing.

SUPPORTING ISSUES Environmental/Infrastructure/Transportation Issues

Recommendations Responsible Comments parties

Promote the use of brownfields through DMD, DPW, Utilities subsidizing new or updating existing infrastructure.

Rezone brownfield sites to more flexible/favorable DMD districts as appropriate as a method to hasten re-use.

Within the Brownfields program, specifically target DMD, MCANA Examples include certain environmentally sensitive areas for clean wellfields and areas near up. rivers and streams

Form a study group to research the topic of DMD, DPR, Of particular interest are protecting and enhancing scenic views. Neighborhood views of natural features, Assoc., Historic views of the Downtown Landmarks skyline and the views Foundation of encountered by visitors Indiana (HLFI), to the City. Environmental Organizations

Develop a reliable funding mechanism for the DPR, DMD Possibilities include acquisition of land for parks and greenways. impact fees, point-of- purchase fees, tax check-offs, partnerships with the Indianapolis Parks Foundation, etc.

Manage and wisely use water resources. Public and private Note that some water utilities competing regions are not self-sufficient in water supply.

Use a regional approach to meeting air quality DPW, MPO Non-compliance with standards. ozone regulations can lead to mandatory vehicle testing, loss of federal transportation funding and limits on new development. Air pollution affects human health.

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SUPPORTING ISSUES Environmental/Infrastructure/Transportation Issues

Recommendations Responsible Comments parties

Continue research and monitoring to better DPW understand the causes and effects of air pollution in the Central Indiana region.

Maximize multiple uses and efficiency of uses of DMD, DPW, MPO rights-of-way.

Establish more defined and clearly stated DMD, MPO, DPW standards for the way thoroughfares handle vehicular, pedestrian, and bicycle traffic.

Develop standards for evaluating impacts of DMD, MPO, DPW roadway projects on neighborhoods.

Identify and establish “gateway corridors” DMD, North Meridian Street, US (corridor overlay zones) to preserve unique Neighborhood 31 in Johnson County, identifying features or characteristics of Assocs., Business US 31 in Carmel and neighborhoods. Assocs., Main the new interest in the Street National Road U.S. 40, are examples.

Light public streets to an effective level for safety DPW, Indianapolis and security without causing undue lighting of Power & Light private property. Company (IPL)

Provide incentives for “High Occupancy Vehicles” DMD, DPW such as park and ride areas.

Expand mass transit options. IndyGo, MPO

Continue to improve bus transit. IndyGo, MPO

SUPPORTING ISSUES Environmental/Infrastructure/Transportation Issues

Recommendations Responsible Comments parties

Enhance mobility and reduce commute times MPO, IndyGo, Workforce productivity is throughout the region. Ease the movement of local planning reduced by time lost in goods and services in the region. agencies traffic congestion.

Establish a dependable funding mechanism for DPW Possibilities include infrastructure improvements. impact fees, property transfer fees and, capacity fees

Encourage use of new methods and materials DPW to stay on “cutting edge” of infrastructure technology.

Coordinate and maintain a regularly updated DPW infrastructure database for planning, asset maintenance and improvements, which identifies committed funding sources.

Continue current City policy to manage DMD, DPW stormwater so that development will not adversely affect the water quality of downstream properties.

Quickly implement a comprehensive long-term DPW control plan for CSO(s).

Develop standards for the ongoing maintenance DMD, DPW Standards could be of stormwater devices (retention ponds, inlet and used for maintenance outfall structures, buffer areas, etc.) plans that could, in turn, be required as part of zoning commitments.

Create and fund a program that gathers private DMD, Marion capital funds to implement BMP’s. County Wellfield Education Corporation (MCWEC), DPR

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SUPPORTING ISSUES Environmental/Infrastructure/Transportation Issues

Recommendations Responsible Comments parties

Maintain and improve current City practice DMD, DPW, DPR of coordinating water-related projects and programs through multi-agency watershed teams.

Activate Marion County watershed coordination DPW, DMD, teams for the entire county. participating city- county agencies

Share knowledge gained in watershed DPW, DMD, coordination with other governments in the participating city- region. county agencies

Continue support for Upper White River DPW Watershed coordination activities.

Ease the conversion/transition of rural-type DPW, DMD, local This is a regional issue drainage systems to the urban setting. Enhance county surveyors, because of the nature watershed-based coordination among county engineers of watersheds that cross governments in region. county lines.

Fund MCWEC for the purpose of promoting DMD, Water wellfield protection among existing businesses. Utilities

Implement a systematic method of compliance DMD, DPW, HHMC inspection for wellfield protection measures.

Create and fund a program for conservation DMD, Water The program should be easements, restrictive covenants or land Utilities, DPR open to a variety of sites, acquisition and transfers for wellfield protection however tax delinquent and protection of water quality- related sensitive properties may be a sites and mitigation areas. good place to start.

Develop a “tool kit” of city resources and DMD Brownfield Educate and provide contacts to assist brownfield redevelopment. coordination technical assistance to the public and private sectors on tools.

SUPPORTING ISSUES Environmental/Infrastructure/Transportation Issues

Recommendations Responsible Comments parties

Increase City’s capacity to aid private property DMD Brownfield Added capacity owners in finding new uses for brownfield sites; coordination is needed for establish a city “ombudsman” for brownfield assisting citizens affected sites. and neighborhood organizations in brownfield sites.

Improve the environmental health of Indianapolis DPW, MCHD, Property owners and by removing trash, rodents, and stray animals. Neighborhood tenants can accomplish Assoc., HOA, KIB this through voluntary cooperation.

Increase the sharing of planning related City in information among government agencies, cooperation with especially for infrastructure planning and other governments coordination. in region

Continue to make public investments in City, other city, Look for ways to make geographic information systems (GIS) to analyze town and county GIS affordable to all and understand the region’s problems, assets governments governments in region. and potentials. Consult Indiana GIS Council guidelines when available.

Pursue hub status to promote non-stop, foreign Indianapolis and domestic passenger air transportation Airport Authority between Indianapolis and other areas with similar industry clusters.

Actively lobby state and federal governments Chamber of to increase interstate highway access from Commerce, Indianapolis to southwestern Indiana, the south City central United States and Mexico

Encourage development of a Central Indiana Central Indiana CIRTA is working to Regional transit system. Regional Transit expand mass transit on Alliance (CIRTA), a regional level. MPO

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SUPPORTING ISSUES Environmental/Infrastructure/Transportation Issues

Recommendations Responsible Comments parties

Establish a Regional Transit Authority Elected Officials

Provide for more carpooling and future high MPO occupancy travel lanes in regional highway plans; provide alternatives to single occupancy vehicles.

Coordinate the city’s mass transit services and DMD, MPO, other modes of transportation to complement IndyGo redevelopment plans.

Promote diverse, coordinated and affordable City Passenger rail for mass transportation alternatives to provide example. increased access to local employment centers.

Include express bus routes in the update of the IndyGo, MPO “Official Thoroughfare Plan.”

Devise a strategy to make high-speed fiber-optic Indy Partnership Need to benchmark digital data transmission available to business, against peer cities residences and not-for-profit organizations throughout the county and region.

Create an “MPO-like” entity for coordination City, in Coordination is of non-transportation infrastructure in the cooperation with especially important region such as sanitary sewers and storm water other governments in areas where large management. in region projects may involve several utility providers. Note that utility infrastructure is typically located in existing and proposed public street right-of-way.

SUPPORTING ISSUES County Level Issues

Recommendations Responsible Comments Parties

Increase sharing of planning information among DMD, DPW, MPO, City agencies and utilities. utilities

Require coordination of Plans (thoroughfare, DMD, DPW, MPO, mass transit, and land use plans) and funding IndyGo sources.

Support citizen-based initiatives to refine regional Central Indiana Citizen groups may concerns, work with regional trade, professional Regional refine areas of common and business associations. Citizens League concerns and make it (CIRCL), Greater easier for governments Indianapolis to sustain regional Progress cooperation. Committee (GIPC)

Encourage communication among political Polis Center leaders and professional planners in the nine county region with the goal of devising a simple, common planning language.

Provide a “Regional Facilitator” to stimulate City, GIPC, Central Maintain the momentum further dialogue on regional thinking in: Indiana Corporate of efforts such as Land use planning Partnership (CICP), Metropolitan Association Funding of regional infrastructure CIRCL of Greater Indianapolis Transportation and mobility Communities (MAGIC), Economic development CIRTA, and CIRCL. Energy-generation and distribution, demand side management Regional applications of central heating and cooling districts Parks, recreation and open space Solid waste Development of a regional agenda for state and federal legislation.

Develop a regional approach to improving the Chambers of Regional image is community’s image. Set regional targets. Try a Commerce, KIB, important, especially coordinated pilot project to improve the image related tourism & along major corridors and function of a multi-county corridor, including business groups (US40-National Road, streetscape, billboard control etc. Rockville Rd., Airport expressway-I-70.)

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SUPPORTING ISSUES County Level Issues

Recommendations Responsible Comments Parties

Refine strategies for regional economic DMD, Indy Academic and development partnerships based on: Partnership, CICP economic development Recognition that the Indianapolis Region is researchers support competing with other regions in the nation and this view. The strong world. economy of 1990’s can City and county boundaries are less significant lead to complacency with global competition. about the need for continued strengthening of regional assets.

Investigate tax revenue sharing for “incentivized” DMD, Indy The seven county tax projects, acknowledging that most tax incentives Partnership, CICP revenue sharing in the are localized but economic benefits are mobile Minneapolis region is a and spread easily throughout the region. good example.

Use parkways, greenways, open space areas DPR, MPO The community’s quality- and other community assets as economic of-life is important to development tools to attract new businesses and attract and retain residents. businesses.

Create an organization to help attract, retain, DMD, An organization similar to and sustain retailers. Neighborhood Indy Partnership Assoc.

Establish a forum for planners from all jurisdictions CIRCL, City in the nine county area to discuss common issues and formulate goals.

SUPPORTING ISSUES County Level Issues

Recommendations Responsible Comments Parties

Create and support a countywide entity to DMD, ICND, This entity would support mixed use redevelopment activities. Indianapolis serve to: advise and Urban Economic advocate for business Development community-based Initiative (IUEDI), development groups business and trade and businesses, organizations, disseminate information lending institutions on available redevelopment sites and prospects, offer expertise in marketing, financing and leasing, especially to small scale commercial and retail operations.

Monitor and report on a broad array of City, CIRCL, quality of life indicators every 2-3 years. Healthy Indy These quality of life indicators should reflect Partnerships, attention to education, health care, industry/ INRC, GIPC, technology, civic life, volunteerism, the CICF, Family humanities, environment, social safety net, and Strengthening neighborhood and community connections, Coalition, among others. Chamber of Commerce

Provide adequate funding for new public safety IPD, MCSD, facilities. DPS, All fire departments.

Strengthen public safety by collaborating with All police all Marion County Police and other Departments departments and improving communications systems.

Create and implement a process to project School Districts, the future need for new school buildings or the DMD expansion of existing schools.

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SUPPORTING ISSUES County Level Issues

Recommendations Responsible Comments Parties

Evaluate and anticipate needs for homeless and DMD, Coalition alternative shelters, and upgrade or add facilities for Homelessness throughout the city to help integrate this sector of Intervention the population into the community. and Prevention (CHIP), Indiana Association for Housing and Homeless Issues (ICHHI), Salvation Army and others.

Provide options for low-cost transportation to CCI, HHMC, Most hospitals are on health care for individuals without access to mass Foundations bus routes but access transportation. Churches, Health home might be a care providers problem. Federal & State Government.

Increase awareness of barriers to citizens with IndyGo, Business disabilities and the elderly and improve access Community, to public buildings, public transportation, Cultural recreation, arts and cultural opportunities. Institutions and Social Services, VSA Arts of Indiana, Mayor’s Assistant on Disabilities, Governor’s Planning Council for People with Disabilities.

Incorporate the use of arts and cultural resources DMD, Arts Council, and facilities as an economic development tool CDCs in neighborhood stabilization projects.

Identify structures, sites and public views, in DMD, IHPC, HOAs, Survey neighborhoods addition to those already recognized, that should CDCs be considered for protection measures.

SUPPORTING ISSUES County Level Issues

Recommendations Responsible Comments Parties

Encourage other municipalities, counties, and Cultural communities in the State to help develop, sustain Development and enhance the cultural facilities located in Commission Indianapolis that serve the State as a whole.

Encourage and support communities in City, Channel 16 celebrating, preserving, and transmitting their traditions through cultural activities, the arts, education, and public events.

Promote partnership between the business Business For example, free community and arts and cultural organizations. community admission days Make cultural experiences accessible to the widest possible public.

Promote partnerships among cultural heritage City, Indiana agencies, City government, and community Black Expo, organizations to develop a program and Madame Walker, marketing strategy to celebrate Indianapolis’s Athenaeum, cultural diversity. Hispanic Center, etc.

Encourage major arts and cultural institutions Cultural Provide free public to develop plans for the future and provide the Development access opportunities. public with greater awareness of their resources. Commission, Major Institutions

Work in partnership with artists, arts organizations, Multi-Service ethnic, cultural, musical, community associations, Center’s, and educational institutions to foster opportunities Neighborhood for life-long cultural exploration for all citizens. Assoc., HOA

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SUPPORTING ISSUES County Level Issues

Recommendations Responsible Comments Parties

Encourage informal opportunities for learning City, Utilities, Examples include about and enjoying arts and culture through Indianapolis Art poetry and graphic performances and events in non-traditional Center, Libraries art on transit, the settings and the integration of arts and culture treatment of information into the everyday workings of public and private on public flyers and entities. billing statements, and library resources and programming.

Use public spaces for arts and cultural activities DPR, DMD, Arts and events. Council

Encourage schools to make their facilities Schools There is a need for funds available to neighborhoods for cultural programs, to defray the cost. community services, meetings, and gatherings.

Promote partnerships between the City and other City, Arts Council Create a clearing house public and private entities in the region to simplify International for information, web- and coordinate funding processes and promote Center, base planning calendars the development of strong arts and heritage Nationalities organizations that provide cultural programming. Council, Indiana Arts Commission, and Regional Partnership.

Facilitate volunteer public arts projects, such as DPW, DMD, Arts community murals, by identifying locations where Council, GIPC art is desirable, can be accommodated safely, and will be enjoyed by many people.

Provide training in life skills education beginning Multi-service at an early age in a variety of settings. Centers, CDCs, Schools, Girls, Inc., Boys Club, YMCA, YWCA

Support cultural programs, especially for at-risk Multi-Service youth in and outside the school setting. Involve Centers, Schools, artists and scholars in partnership with cultural Universities organizations and institutions.

SUPPORTING ISSUES County Level Issues

Recommendations Responsible Comments Parties

Create opportunities for students to be Schools, Major exposed to many cultures in a variety of venues Institutions throughout the city so that their education may be well rounded.

Involve youth in the design and implementation Indianapolis Art of public art projects. Center, Schools, Universities, Neighborhood Associations

Promote convenient, adult continuing education, DMD, Indy Workers want courses take full advantage of emerging community Partnership, CICP, at or close to work and college programs and facilities, research & area colleges and along major commuting development. universities routes. Jobs in the “New Economy” require higher skills and continuing learning.

Support technology initiatives of institutions of DMD, MCANA, higher learning. Chamber of Commerce, Indy Partnership

SUPPORTING ISSUES Neighborhood Level Issues

Recommendations Responsible Comments Parties

Encourage businesses to join and/or form a Chamber of There are only a few neighborhood business association. Commerce, business associations in Small Business Indianapolis. Association (SBA), Indianapolis Neighborhood Resource Center (INRC)

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SUPPORTING ISSUES Neighborhood Level Issues

Recommendations Responsible Comments Parties

Create a task force to explore the reasons that DMD property owners do not reinvest in their properties. Examine the different ways to encourage investment such as information campaign, low interest loans, grants, and tax incentives as well as other means.

Support opportunities for residents to engage in DMD neighborhood level planning in identifying assets and services important to that neighborhood. Link neighborhood residents to these assets through intensive coordination and promotion of existing resources.

Develop a strategic plan to allow for mixed- DMD, GIPC income housing and educate the community about the value/impact of mixed-income developments.

Revise and consolidate the Airport Industrial DMD Development Plan, Airport Vicinity Plan and the Minnesota Street Corridor Study, to produce an updated Airport Vicinity Plan.

Continue to encourage developers to notify and Developers, DMD Township Administrators meet with neighborhood associations as early in and Planners can the development process as possible. encourage developers to meet with the neighborhoods.

Create a strategy for the stabilization of older DMD suburban areas and commercial centers outside the Regional Center.

Consider a hierarchy of City redevelopment DMD incentives, based on the scope of the project, impact on the neighborhood and extent of community participation.

SUPPORTING ISSUES Neighborhood Level Issues

Recommendations Responsible Comments Parties

Keep or expand programs such as retail DMD tax abatement and façade improvements assistance.

Advance the retention and expansion of existing Indy Partnership, Note that some viable employers who need additional land area utility companies, businesses need to around their facilities. DMD expand but cannot do so without city help.

Encourage business start-ups and locally owned DMD, CDCs, Local and small businesses in redevelopment projects. Small Business businesses are key Development to successful retail Center, redevelopment efforts. Neighborhood associations

Recruit neighborhood residents for construction Workforce jobs and new permanent jobs from agencies , redevelopment facilities, including job training. Indianapolis Coordinate redevelopment planning with Private Industry employment and training programs. Council (IPIC), neighborhood associations, community centers agencies

Use geographic information systems (GIS) to look DMD An “early warning for indicators of blight in order to identify likely system” would be “redevelopment” areas. It is also possible to track helpful to the city, with indicators of positive change and analyze if land the intent to avert further use and zoning policies are having the desired decline. effects.

Use GIS to better identify active redevelopment DMD This information should areas, indexed with the pertinent city agencies, be available on- neighborhood based organizations, Economic line to all interested Improvement Districts (EIDs) and other adopted parties. Provide maps plans for the areas. with brochure-type information to attract potential buyers and tenants.

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SUPPORTING ISSUES Neighborhood Level Issues

Recommendations Responsible Comments Parties

Refine City and County land disposal DMD, Marion Encourage prospective procedures to encourage redevelopment County Treasurer buyers to investigate the of the buildings and sites. Index subject and Recorder, adopted plans for the properties to adopted city redevelopment and HHMC subject area. neighborhood improvement plans. Notify CDCs and neighborhood organizations of available properties.

Include libraries, cultural institutions, parks libraries, parks, These non-commercial and recreation and education providers in museums, cultural land uses can redevelopment planning. institutions add amenities and attractions to commercial redevelopment.

Convene the leaders of neighborhood City Use economic organizations and districts representing older development incentives suburban areas to coordinate revitalization as a tool for revitalization and economic development efforts, including and redevelopment the identification of sources of funding for efforts, decreasing the redevelopment and incentive procurement. rate of decline of these older neighborhoods.

Use incentives to encourage infill developments DMD, CDCs, by the private sector in neighborhoods Builders experiencing disinvestment. Association of Greater Indianapolis (BAGI), Neighborhood Assoc.

Expand and strengthen the role of CDCs in the DMD, It is a challenge to find stabilization of neighborhoods experiencing Neighborhood funding to sustain a disinvestment. Assoc., MCANA, CDC; additional funding INRC, ICND sources will be needed for any expansion beyond existing CDCs.

SUPPORTING ISSUES Neighborhood Level Issues

Recommendations Responsible Comments Parties

Encourage neighborhoods without CDCs or Neighborhood Start-up and similar organizations to establish CDCs/non-profits Assoc. MCANA, administration funds are to ensure development and the repair of low to DMD, Indianapolis needed, not just project moderate-income housing. Coalition of cost. Neighborhood Developers (ICND), Funders

Create strategies for the application of DMD tax incentives for redevelopment that are competitive with those for new development.

Prioritize city infrastructure improvements to make DMD, DPW Some older areas need redevelopment sites and their environs more significant improvements attractive and competitive. to streets, sidewalks, storm sewers

Influence the modification of statutes to permit City Although DMD can the application of meaningful tax abatements for suggest such legislation, properties with an assessed valuation, but without it is in the control of a significant market value. Determine a method the State legislature (with criteria) to decrease to zero the assessed to propose, hear and valuation of a property that is eligible for tax enact legislation. abatement.

Improve regulations regarding vacant, IPD, MCSD, MCHD, abandoned, tax delinquent or surplus buildings DPW and properties to improve the visual image and reduce crime potential, safety and fire hazards and other blighting effects on the neighborhood.

Ensure that infill developments in historic areas DMD, IHPC, are not all limited to high-income buyers and Neighborhood tenants. Assoc.

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SUPPORTING ISSUES Neighborhood Level Issues

Recommendations Responsible Comments Parties

Develop stabilization plans for neighborhoods DMD, CDCs, that are experiencing disinvestment. Prioritize INRC, Local DMD’s neighborhood planning services based on Initiatives Support need and the availability of support systems such Corporation (LISC), as CDCs to assist in the revitalization or an anchor Neighborhood reinvesting in the area. Assoc., HOAs

Strengthen neighborhood identities by HOAs, establishing and sustaining neighborhood Neighborhoods organizations that are broad-based, sustainable, Assoc., and inclusive. CDCs, INRC, Communities Associations Institute(CAI), MCANA

Expand technical assistance and training INRC Examples include in community building to neighborhood training on building associations. and zoning codes and forums on the development of cooperative and communal responses.

Support small-scale community projects and Neighborhood Grants are available events, including neighborhood celebrations, Assoc., HOA, clean-ups, home fix-ups, beautification, INRC, Extension community gardens and neighborhood Service newsletters to build community.

Seek additional funds and provide assistance INRC, DMD, Grant writing to agencies and/or non-profits that assist in MCANA, Multi- assistance. community building activities that help create Service Centers, strong individuals, strong families, and strong Central Indiana neighborhoods. Community Foundation (CICF)

Encourage neighborhood based bartering Neighborhood projects in which neighbors support each Assoc., HOA other with their personal skills, strengths, and contributions.

SUPPORTING ISSUES Neighborhood Level Issues

Recommendations Responsible Comments Parties

Partner with leaders from various denominations City to develop an inventory of congregational ministries and assets that are neighborhood focused and could link neighborhood residents to local assets and services.

Create and/or encourage an existing agency to Mayor’s Office, monitor fair and equitable housing. City-County Council, DMD

Raise awareness of housing rules, regulations, Indianapolis and codes and inform property owners of their Neighborhood rights and responsibilities through an education Housing campaign. Partnership (INHP), DMD, INRC, CDCs, Legal Services, Community Organization Legal Assistance Project, Inc., (COLAP)

Strive for all properties to meet the rules, MCHD, HHMC, Increase the number regulations, and codes of the Health and Neighborhoods, of qualified building Hospital Corporation of Marion County and the City-County and code compliance Department of Metropolitan Development to Council inspectors; assure they ensure the well being of all its citizens. are held accountable for strict adherence to current codes.

Inform new and potential homeowners about INHP, CDCs, achieving and maintaining homeownership. MIBOR, Lenders, Family Service Assoc.

Provide incentives such as gap financing for Private lenders, Ensure that lending mixed income housing that will assure income Mayor’s Housing regulations or practices diversity in rebounding neighborhoods. Task Force do not unduly segregate neighborhoods by income.

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SUPPORTING ISSUES Neighborhood Level Issues

Recommendations Responsible Comments Parties

Develop single-family home loan products to fill Lenders, INHP, This segment is missing a void for purchase and rehabilitation of older Mayor’s Housing loans for many people houses. Simplify the process of two loans (1st Task Force who want to buy existing construction loan then 2nd mortgage loan). homes that do not meet building codes. The problem is that sale of the original loan requires home to be fully restored. This leaves out the “sweat equity” buyer who will take more time to restore the home.

Create a taskforce to explore occupancy permits City, HHMC, for rental property. Mayor’s Housing Taskforce, Landlord Assoc.

Develop more loan products for repair and Lenders, INHP, Each township needs rehabilitation of rental properties, particularly Mayor’s Housing a supply of well- small-scale rental properties (i.e. 2-4 unit Task Force maintained rental buildings). Terms should be more manageable, property. with smaller down payment, longer term and better interest rates.

Create and promote loan programs that are Community tailored to renovation and remodeling. Development Lenders, CDCs.

Encourage incentives for home repair to CDCs, DMD, Assist properties with the elderly, disabled and the economically Religious code violations first. challenged by: Organizations, Offering training to anyone wanting to learn how INHP, to repair his or her properties, Neighborhoods Assisting property owners in securing funds and Assoc. finding contractors to renovate or remodel, Providing emergency home repair.

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“The only limit to our realization of tomorrow will be our

doubts of today. Let us move forward with strong and

active faith”

--President Franklin Delano Roosevelt--

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for Indianapolis/Marion County is comprised of a variety of planning materials, of which this document is a part. While the general land use maps are probably the most well known elements of the Plan, thoroughfare, corridor, sub-area, redevelopment, and park plans are also adopted as segments of the Comprehensive Plan. Implementation, therefore, is a complex process involving thousands of individual decisions based on a variety of planning documents.

The various components of the Plan are implemented in different ways. The Metropolitan Planning Organization and Department of Public Works implement the Thoroughfare Plan when they approve the widening, improvement and construction of streets. Neighborhood and corridor plans are implemented by neighborhood organizations in partnership with the City and other institutions. The Department of Parks and Recreation is the primary implementer of the park plan segments of the Comprehensive Plan.

The land use portions of the Comprehensive Plan are implemented by private individuals and groups as they make decisions on how to develop or redevelop their property. Because state law recognizes the Comprehensive Plan as the basis for zoning, individuals and groups are not only guided by the Comprehensive Plan, but also regulated by zoning ordinances. The application and enforcement of the Zoning Ordinance is the responsibility of the Department of Metropolitan Development, and involves the Division of Planning, and the Division of Permits.

The Current Planning Section of the Division of Planning reviews land use petitions, such as variances, rezonings, approvals, special exceptions, subdivision plats and vacations. The staff planners provide recommendations pertaining to these petitions to various appointed and elected decision making bodies. Additionally, they provide decisions on certain administrative petitions, such as nonconforming use applications and Regional Center approvals.

The Permitting Section of the Division of Permits reviews and approves site and development plans in order to ensure that approved plans comply with zoning, building and infrastructure regulations. The Inspection Services Section of the Division of Permits enforces the zoning ordinances and ensures that construction meets building and infrastructure codes.

The Department of Metropolitan Development works with three different bodies that provide oversight in the implementation of the Comprehensive Plan and the enforcement and administration of the zoning ordinances. They are the City-County Council, including its Metropolitan Development Committee; the Metropolitan Development Commission (MDC) and the Board of Zoning Appeals (BZA).

As the legislative body of local government, the City-County Council has the primary responsibility of enacting, repealing, or amending local laws. The twenty-nine member Council makes policy, passes laws, and approves appointments and budgets. In relation to implementing the Comprehensive Plan, the Council considers MDC recommendations for ordinances. They also consider rezoning petitions approved by the MDC. The Metropolitan Development Committee, a Council Standing Committee, reviews planning and development proposals prior to their consideration by the full Council.

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The nine-member Metropolitan Development Commission adopts and amends the Comprehensive Plan. The MDC then uses the Comprehensive Plan to help guide the efficient and orderly development and redevelopment of the city and county. The MDC also recommends zoning laws to the City-County Council for adoption. The MDC hears zoning petitions and approves or denies them. When making their decision on a zoning petition, the MDC by state law (Indiana Code 36-7-4-603) is required to pay reasonable regard to:

• The Comprehensive Plan; • Current conditions and character of structures and uses in each district; • Most desirable use for which the land in each district is adapted; • Conservation of property values throughout the jurisdiction; • Reasonable development and growth; and “give consideration to the general policy and pattern of development set out in the comprehensive plan.”

The Board of Zoning Appeals reviews variances, special exceptions and modifications to variances. Additionally, the BZA acts as an arbiter when decisions or interpretations of the Administrator are challenged. The Comprehensive Plan must be considered by the BZA when making a decision on a variance of use petition. The BZA must also consider five findings of fact:

• The grant will not be injurious to the public health, safety, morals, and general welfare of the community; • The use and value of the area adjacent to the property included in the variance will not be affected in a substantially adverse manner; • The need for the variance arise from some condition peculiar to the property involved and the condition is not due to the general conditions of the neighborhood; • The strict application of the terms of the zoning ordinance will constitute an unusual and unnecessary hardship is applied to the property for which the variance is sought; and, • The grant does not interfere substantially with the Comprehensive Plan.

Recommended Ordinance and Procedure Changes

A number of ordinance and procedural changes are recommended as ways to implement the values and goals of this Plan. Development of these ordinance and procedure changes will primarily, but not exclusively, be the responsibility of DMD. Ordinance changes are typically developed with the assistance of citizen committees. As described above, recommended ordinance changes, and in some instances, procedural changes, are acted upon by the MDC and the City-County Council. In accordance with Indiana Code, when adopting a zoning ordinance, a legislative body shall act for the purposes of:

“(1) Securing adequate light, air, convenience of access, and safety from fire, flood, and other danger; (2) Lessening or avoiding congestion in public ways; (3) Promoting the public health, safety, comfort, morals, convenience, and general welfare.”

Recommended Ordinance Changes

DWELLING DISTRICTS ZONING ORDINANCE Item Comments Amend the cluster option in the Dwelling District Zoning Ordinance to allow transfer of preserved open space to the Department of Parks and Recreation at the approval of the Department as it meets their mission. Amend the Dwelling District Zoning Ordinance to require The open space should perform community open space within residential developments some valuable recreation or over a certain size. environmental function and not just be a “leftover”. Amend the Dwelling District Zoning Ordinance to require connection to a wastewater system within the DP zoning district. Limit lot reduction under the cluster option by establishing Minimize incompatible transitions a district-by-district minimum lot size. between residential subdivisions Amend the Dwelling District Zoning Ordinance to allow Reduces overall lot imperviousness. Shared driveways that connect two or more homes together. COMMERCIAL/INDUSTRIAL ZONING ORDINANCES Item Comments Increase landscape buffering between commercial/ industrial areas and residential areas. In addition to buffering, this will provide attractive views of the natural scenery and neighborhoods of the City. Amend commercial and industrial zoning ordinances to To encourage less vehicular use. require sidewalks and standards for pedestrian safety. Amend the commercial and industrial zoning ordinances Continuing education must be to allow education facilities within commercial, office and convenient to current work force. industrial zones. Incorporate aesthetic development considerations/ Standards should, at a minimum, standards for the commercial and industrial areas consider lighting, natural features, particularly as they relate to major streets and highways. and landscaping.

Refine the City’s parking requirements to facilitate: Redevelopment areas offer the Shared parking of adjoining uses, opportunity for a better balance of Parking ratios that reflect pedestrian access, on-street land uses, pedestrian friendliness and parking and transit influences, remote locations of land devoted to vehicular uses. employee parking, linked by shuttle buses and sidewalks, site planning standards for parking lots that will increase the attractiveness of parking within the existing business and residential context, “Parking Impact Studies” that assess the actual need for parking of new and infill development and the orientation to the use to be served.

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Recommended Ordinance Changes

COMMERCIAL/INDUSTRIAL ZONING ORDINANCES Item Comments Amend the Sign Regulations and Commercial Zoning The sign ordinance should minimize Ordinance to further control on-premise signs and to visual pollution, maximize public reduce the number of off-premise signs (billboards). safety, efficiently use resources, and maximize the visual image of the city. Amend the Zoning Ordinances to institute parking maximums. Amend the Commercial District Zoning ordinance to A standard based on tree canopy require a greater level of landscaping within parking lots. may be the most effective method. WELLFIELD PROTECTION ZONING ORDINANCE Item Comments Amend the Wellfield Protection zoning ordinance to ban the construction of new septic systems in wellfields. Amend the Wellfield Protection zoning ordinance to ban potentially polluting businesses in 1-yr. time of travel zone. Amend the Wellfield Protection zoning ordinance to This is especially important in lease require review of business use changes and expansions space and flexspace situations in wellfield protection areas for wellfield protection where a business that does not use measures. contaminants might be succeeded by one that does. Amend the Wellfield Protection zoning ordinance to require notification of the neighborhood where a TQP review is taking place. GRAVEL, SAND, AND BORROW ZONING ORDINANCE Item Comments Update the Gravel, Sand and Borrow Zoning Ordinance Topsoil, subsoil, and aggregate to provide sufficient safeguards to protect the deposits are the filtering mechanisms environment and the stability of adjacent neighborhoods, over wellfield aquifers remediate property, and provide for traffic impact studies. Protection of underground water supplies from contamination is a particular concern.

AIRPORT ZONING ORDINANCE Item Comments Revise the Airport Zoning Ordinance to provide for Eliminates public health issues an Airport Perimeter District, similar to the UQ-2 or associated with noise from airport. PK-2 Districts, which, among other things, would prohibit residential development within appropriate Reduces capital the airport has to noise contours from the airport and establish aviation divert to noise abatement programs easements that can be applied to capital improvements.

Recommended Ordinance Changes

TREE/VEGETATION CONSERVATION, PRESERVATION AND RESTORATION Item Comments Amend the Zoning Ordinances to require preservation of Vegetation should be of sufficient existing dense vegetative cover or the planting of dense height to provide adequate shading. vegetative cover along stream and tributary banks for Use of native plant communities the purposes of erosion control, contaminant capture, should be emphasized water cooling (important for retaining oxygen levels) and habitat preservation. Develop a county-wide tree conservation ordinance for The full range of the environmental both public and private land that limits site clearing, and qualities of woodlands should be uses a tiered approach based on forest types. considered, not just appearance. The City of Ann Arbor, MI’s “Guidelines for the Protection and Mitigation of Natural Features” is a good example of the system proposed. Provide mitigation options such as tree banking or open space banking. Amend the appropriate Zoning Ordinances to require In addition to the current lists of provision of street trees in new subdivisions. recommended trees and shrubs, the City should provide to developers and to the general public a list of invasive exotic trees and shrubs that should not be used in landscaping. Develop and provide to Homeowner Associations standards for the ongoing maintenance of the trees. SUBDIVISION CONTROL ORDINANCE Item Comments Revise “Subdivision Control Ordinance” to require development to include more than one exit. Incorporate the use of overlay or neighborhood ordinances to address individual area needs. Require multi-modal connectivity amoung “Multi-modal” refers to the range neighborhoods and amoung neighborhoods, of transportationoptions: walking, commercial areas, recreation and institutional facilities, bicycling, driving, public transit and civic uses and public transportation. paramobility.

UNSPECIFIED ORDINANCE REVISIONS Item Comments Amend the appropriate ordinances to require connection To provide simple connections of new subdivision streets to existing “stub streets” in among subdivisions without being surrounding residential developments. forced to use the arterial street system. Require green spaces and landscaping in redevelopment Redevelopment sites need to be projects. attractive to new customers, workers and to their neighborhoods.

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Recommended Ordinance Changes

UNSPECIFIED ORDINANCE REVISIONS Items Comments Amend the light and noise provisions of the zoning district The City of Nashville, TN’s ordinance ordinances to add specificity with the goal of making provides a good example. these provisions easier to enforce and ensuring public Enforcement may require specialized safety equipment and additional training for inspectors. Establish Urban Design standards specifically for infill Certain common patterns apply to settings and associated with the particular character of the era in which the area was first the location; require that city-assisted redevelopment developed. projects have new buildings and signage that are compatible with their urban context.

Recommended Procedural Changes

RULES OF PROCEDURE REVISIONS Item Comments Improve the notification process among public planning Earlier notice would help other agencies. agencies to evaluate pending projects. Require applicants to consult the Comprehensive Plan A possible method would be to ask prior to petitioning before Planning Commission. for this information on the rezoning application Establish specific impact statements as a justification for a The impact statement should deviation from a recommendation of the Comprehensive provide a comparison between a Plan. Said impact statement should be incorporated into requested land use and the typical the Rules of Procedures of the Metropolitan Development impact of the Comprehensive Plan Commission and Boards of Zoning Appeals. recommendation Amend rules of procedures to require any significant Allows staff and public time to review changes to a petition be made within a reasonable modifications. period of time prior to the hearing. DEVELOPMENT REVIEW PROCEDURES Item Comments Develop a mechanism for a “heightened review” of Review should include City staff development petitions for areas with the Comprehensive with environmental expertise as well Plan designation of Environmentally Sensitive. as concerned citizens and citizen organizations.

Change existing policy to exclude regulated areas such as floodways and levees to the extent of the law when calculating housing densities. Calculate and consider the probable impact of housing developments requiring a rezoning on affected school jurisdictions.

Recommended Procedural Changes

DEVELOPMENT REVIEW PROCEDURES Item Comments Develop a site plan review procedure in the rezoning process aimed at reducing impervious surfaces through use of alternative street layouts, efficient parking layouts and use of pervious materials in “spillover” parking areas. Promote the use of the Supplemental Review Process to broaden the discussion of environmental factors. Provide incentives beyond the cluster option for the Possibilities include tax reductions, conservation of environmentally sensitive areas such as and stormwater credits. stream buffers, woodlands, and native meadows. Require pedestrian friendly site plans, consider elderly and disabled persons in planning. COORDINATION AND TRAINING Item Comments Better integrate administration (permitting and inspections) of the Flood Control District Zoning Ordinance with the zoning and variance process, the TQP process and plan review for tree preservation. Coordinate planning, inspections, and enforcement for non-point pollution elimination. Provide more education and training opportunities for MDC and BZA members. Develop and publish a citizen’s guide to the The guide could be distributed to Comprehensive Plan and zoning and development neighborhood organizations, public principals to educate citizens on how they can be libraries and made available on the involved in zoning and development decisions. City webpage.

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Recommended Areas for Further Study

ORDINANCES Item Comments Establish a Comprehensive Plan Implementation Committee to develop recommendations for amendments and additions to zoning ordinances that protect, maintain or improve the visual image of the City. Form a study group to review and recommend The group should review minimum improvements to the CS and DP zoning ordinances standards and filing requirements. Review existing City ordinances and polices to determine Open space is a hallmark of which, if any, impede the implementation of “New “New Urbanism” development; Urbanism” developments and then make appropriate encouragement of this type of ordinance or policy amendments. development would be likely to increase the amount of preserved open space. PROCEDURES Item Comments Study the issue of building code compliance during new A Certificate of Occupancy is a construction. potential outcome of this study. Review City rules and policies to determine which are not “tree-friendly”. Work to make these rules and policies more “tree-friendly.”

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APPENDICES

Appendix A: Adopted Comprehensive Plan Segments

The Comprehensive Plan for Marion County is officially adopted into law by the Metropolitan Development Commission. The Plan is amended from time to time by the addition of other plans such as subarea and neighborhood plans, transportation plans, corridor plans, historic preservation plans and parks plans. These amendments are called Comprehensive Plan Segments. They are adopted by the MDC and carry the same weight as any other part of the Comprehensive Plan. To avoid confusion among plans and to avoid duplication of planning efforts, the areas covered by the Corridor Plans and the Neighborhood and Subarea Plans listed below are not re-planned by this update of the Comprehensive Plan.

Corridor Plans Keystone Avenue Corridor Study (86-CPS-R-6) Michigan Road Corridor Study (98-CPS-R-4) Minnesota Street/Washington Street Corridor Study Recommendations (90-CPS-R-3) North Meridian Corridor – Section Six Plan (86-CPS-R-10) North Meridian Corridor Development Plan (82-CPS-R-1) Pendleton Pike Corridor Plan (87-CPS-R-2) U.S. 31 and S. Madison Ave. Corridor Study (88-CPS-R-6)

Neighborhood and Subarea Plans 38th and Shadeland Area Plan (86-CPS-R-8B) 38th Street Corridor Plan- 1998 Appendix: 38th Street Design Charrette (85-CPS-R-6) Results Broad Ripple Village Plan (97-CPS-R-3) Butler-Tarkington Neighborhood Plan (85-CPS-R-10) Citizens King Park Subarea Plan (01-CPS-R-5) Concord Community Plan (00-CPS-R-2) Consolidated Eastside Neighborhood Plan (90-CPS-R-6) Town of Cumberland Comprehensive Plan (01-CPS-R-3) Eagledale Neighborhood Plan (01-CPS-R-1) Far Eastside Neighborhood Plan (96-CPS-R-6) Highland-Brookside Housing Improvement and Neighborhood Plan (93-CPS-R-10) I-65/County Line Road Strategic Plan (97-CPS-R-6) Irvington Neighborhood Plan (86-CPS-R-8) Keystone-Kessler Neighborhood Plan (85-CPS-R-8) Lafayette Rd./Coffin Park Neighborhood Plan (90-CPS-R-4) Lafayette Square Area Plan (99-CPS-R-2) Linwood Square Area Neighborhood Plan (01-CPS-R-2) Mapleton-Fall Creek Housing Improvement and Neighborhood Plan (91-CPS-R-12) Martindale-Brightwood Industrial Development Area Land Use Plan (98-CPS-R-3)

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Martindale-Brightwood Neighborhood Plan (85-CPS-R-9) Meridian-Kessler Subarea Plan (79-CPS-R-3) Near North/Fall Creek Plan (93-CPS-R-7) Nearwestside Housing Improvement and Neighborhood Plan (94-CPS-R-2) Redevelopment/Revitalization of the Southside Community Plan (98-CPS-R-7) Southeastern Housing Improvement and Neighborhood Plan (93-CPS-R-11) Town of Cumberland Comprehensive Plan (01-CPS-R-3) United North East Neighborhood Plan (98-CPS-R-1) West Indianapolis Neighborhood Plan (96-CPS-R-5)

Historic Area Preservation Plans Chatham-Arch Historic Area Preservation Plan (82-CPS-R-5) Fletcher Place Historic Area Preservation Plan (81-CPS-R-3) Fountain Square Historic Area Preservation Plan (84-CPS-R-1) Herron-Morton Place Historic Area Preservation Plan (84-CPS-R-3, 86- CPS-R-5) Lockefield Gardens Historic Area Preservation Plan (85-CPS-R-1) Lockerbie Square Historic Area Preservation Plan (86-CPS-R-11) Old Northside Historic Area Preservation Plan (79-CPS-R-7) St. Joseph Historic Area Preservation Plan (90-CPS-R-7 91-CPS-R-10) Wholesale District Historic Area Preservation Plan (88-CPS-R-1 90-CPS-R-5) Woodruff Place Historic Area Preservation Plan (01-CPS-R-004)

Historic Conservation Districts Fayette Street Historic Area Preservation Plan-Conservation District (95-CPS-R-2) New Augusta Historic Area Preservation Plan-Conservation District (99-CPS-R-001) Ransom Place Preservation Plan-Conservation District (98-CPS-R-006)

Park Plans Arsenal Park Master Plan (88-CPS-R-8) Bowman Park Master Plan (02-CPS-R-7) Christian Park/Pleasant Run (90-CPS-R-12) Clayton-LaSalle Park Master Plan (02-CPS-R-8) Clermont Park - Robey School Master Plan (83-CPS-R-5) Comprehensive Parks, Recreation, and Open Space Plan: (99-CPS-R-3) Pathways to the Future Crooked Creek Community/Juan Solomon Park Master Plan (96-CPS-R-2) Eagle Creek Park Master Plan (97-CPS-R-5) Eagle Highlands Park Master Plan (91-CPS-R-4) Ellenberger Park Master Plan (02-CPS-R-4)

Fall Creek Parkway-Woollens Gardens-Skiles Test Nature Park Master (88-CPS-R-3) Plan Franklin/Edgewood Park Master Plan (91-CPS-R-6) Garfield Park Master Plan (89-CPS-R-2) Gustafson Park Master Plan (93-CPS-R-8) Highland Park Master Plan (02-CPS-R-5) Northwestway Park Master Plan (83-CPS-R-3) Paul Ruster Memorial Park Master Plan (83-CPS-R-3) Post Road Community Park Master Plan (90-CPS-R-15) Raymond Park Master Plan (97-CPS-R-2) Rhodius Park Master Plan (97-CPS-R-4) Southeastway Park Master Plan (87-CPS-R-1) Southside Park Master Plan (88-CPS-R-5) Southwestway Park Master Plan (87-CPS-R-3) Thatcher Park Master Plan (02-CPS-R-2) Tolin-Akeman Park Master Plan (94-CPS-R-1) Willard Park Master Plan (02-CPS-R-6)

Regional Center Plan Regional Center Plan 1990-2010 (91-CPS-R-7)

Transportation Plans Official Thoroughfare Plan for Marion County (99-CPS-4)

Other Comprehensive Plan Segments Infill Housing Guidelines (93-CPS-R-5)

Other Plans and Studies

The following plans and studies have not been adopted by the Metropolitan Development Commission and are not official segments of the Comprehensive Plan. They are, however, mentioned in the text of this document and provide useful information for the implementation of this Plan.

Central Indiana Transportation and Land Use Vision Plan Executive April, 1999 Summary Comprehensive Rail Study December, 1995 IndyGo’s Five-Year Implementation Plan March, 2001 Neighborhood Traffic Calming June, 1999 Regional Mass Transit Service Plan for Central Indiana, prepared for December, 1999 Central Indiana Regional Transit Alliance

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Appendix B: Seven Point Vision Plan

The Central Indiana Regional Citizens League (CIRCL) was formed in 1996 to consider region wide issues, propose thoughtful and creative solutions and introduce them into public debate. The members of CIRCL came together out of a realization that some issues extend beyond neighborhoods, communities and counties and can be best addressed by a broad base of citizens working together.

One of the first tasks that CIRCL undertook was the development of a Seven Point Vision Plan. This 18-month effort looked at how Central Indiana could best meet its transportation and growth challenges in the coming years. These seven points are of relevance to land use decisions made in Marion County.

1. A Multi-Modal Transportation System The focal point of the Vision Plan is a transportation system that integrates good roadways with effective mass transit options to more citizens travel well in years to come. Applied Transportation Strategies: 1,2,3,4 & 5

2. Easier Access Easier access to the places people want most to go will be possible through a variety of transportation alternatives. Applied Transportation Strategies: 1,2 & 3

3. Transit Corridors Development Public transit will be available along existing transportation corridors, origins and destinations where many Central Indiana residents want to go. Applied Transportation Strategies: 1, 2, 3 & 4

4. Mixed Use, Compact Development Neighborhoods will be developed that make walking and biking a more likely way of getting to nearby stores, schools, services and workplaces. Applied Land Use Strategies: 1, 2, 5 & 6

5. Urban Centers A benefit of convenient and time-saving transit options will be the enhanced vitality of Central Indiana’s urban centers, including downtown Indianapolis and the focal points of Central Indiana cities and towns. Applied Land Use Strategies: 1 & 3

6. Open Spaces Open spaces and farmland - a part of the vital ecology and serene landscape valued for generations - will be creatively preserved as the region grows. Applied Land Use Strategies: 4 & 6

7. Integration With Local Plans As the Vision Plan is integrated into local planning, citizens throughout Central Indiana will enjoy the benefits of enhanced mobility and sensitive land use.

APPLIED TRANSPORTATION STRATEGIES

1. Light Rail (LRT) 2. Park and Ride 3. Comprehensive Bus Service - Local and Express 4. Regional Transit Plan 5. Stable, Adequate Funding Mechanisms

APPLIED LAND USE STRATEGIES

1. Higher Intensity Zoning along Transit Corridors 2. Mixed-Use, Compact Development Options 3. Infill/Brownfields Development in Urban Areas 4. Preserving Open Spaces/Farmland through Land Trusts 5. Paths, Lanes and Sidewalk Options 6. Regional Planning with Model Zoning Ordinances

* Summarized from Central Indiana Transportation and Land Use Vision Plan - January, 2000 Central Indiana Regional Citizens League

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Appendix C: Land Use Categories

The following land use categories broadly define development by density ranges and/or use. In the application of these recommendations for land uses decisions, these recommendations, while providing the starting point for a determination of the appropriateness of a land use request, must be placed in the context of the surrounding character and uses at a given location. The Plan anticipates that the current local conditions, the character of existing structures and uses, the most desirable use for the property, the conservation of property values, and the tenets of responsible development and growth will also be evaluated during the decision-making process.

The following land use classifications are for use in updating land use maps subsequent to the adoption of the Community Values Component. Until the new maps are adopted by the Metropolitan Development Commission, the previous maps and land use categories will remain in effect as the basis for land use recommendations.

Primary Land Use Classifications

Residential

Residential Development greater than 0.00 and equal to or less than 1.75 units per acre.

This density is consistent with rural development patterns and could also limit the impact of development on property with extreme topography or other significant environmental considerations such as floodplains, wetlands and old-growth woodlands. Additionally, this density would be conducive to agricultural and estate development.

Residential Development greater than 1.75 and equal to or less than 3.50 units per acre.

This density is consistent with single-family residential development in transitional areas between rural and suburban development patterns and is the typical density for single- family residential development in suburban areas of the City. Development at this density should not take place in rural and suburban areas where surrounding development patterns exhibit characteristics suitable for higher densities (property on mass transit corridors, near concentrations of employment, or near major commercial centers, for example).

Residential Development greater than 3.50 and equal to or less than 5.00 units per acre.

This density is consistent with single-family residential development in suburban areas of the City and in transitional areas between suburban and urban patterns of development. Development at this density should not take place on mass transit corridors. Multi-family residential development is acceptable, but is unlikely considering the density ranges recommended.

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Residential Development greater than 5.00 and equal to or less than 8.00 units per acre.

In suburban and rural areas this is a common multi-family density and typically the highest density single-family category in suburban areas. In urban areas, it is common for both single-family and multi-family development. Development at this density is appropriate along bus corridors but should not take place in proximity to planned light rail transit stops.

Residential Development greater than 8.00 and equal to or less than 15.00 units per acre.

This density is typically the highest density serviceable in suburban areas and would typically be a multi-family (apartment or condominium) category. In urban areas, this is the highest density single-family residential category and a common multi-family category. Development at this density is appropriate for all types of mass transit corridors.

Residential Development greater than 15.00 units per acre.

This density is appropriate only within relatively intense urban areas where there is a full range of urban services and where those services have the capacity to accommodate the development. It may be appropriate in rare circumstances in suburban areas as assisted-living housing and as a buffer between major retail commercial uses and lower density residential uses. Development at this density is appropriate for all types of mass transit corridors.

Urban Mixed-Use

This land use category consists of existing areas of densely developed, pedestrian oriented, mixed-use (primarily commercial), development within the historic central city and first generation suburban areas of Indianapolis. The development pattern varies from location to location but typically includes multi-story buildings located at or near rights-of-way, with entrances and large windows facing the street. Parking is typically within, to the side, or to the rear of buildings. Original building uses were retail and services on the ground floor with offices or apartments on subsequent floors. Future development in these areas should maintain the historic fabric of the existing development. This category is also used in areas where it is appropriate to replicate this older style of development or where it is appropriate to develop small (less than 5-acre) retail uses that serve the immediate neighborhood. The Plan anticipates that development of property with this recommendation would result from a public input process.

56th and Illinois Streets 52nd Street and College Avenue

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Village Mixed-Use

This land use category consists of a development focused on a mixed-use core of small, neighborhood office/retail nodes, public and semi public uses, open space and light industrial development. Residential development densities vary from compact single-family residential development and small-scale multi-family residential development near the “Main Street” or “Village Center” and progress to lower densities outward from this core. Village mixed use areas are intended to strengthen existing, historically rural, small towns and cities within Indianapolis, which are intended to continue as neighborhood gathering places and should allow a wide range of small businesses, housing types, and public and semi-public facilities. This category should be compatible in size and scale to existing villages in Marion County. It will allow development of residential and limited commercial uses on smaller lots than in other sections of rural and suburban Indianapolis. Potential development in these areas should focus on design issues related to architecture, building size, parking, landscaping and lighting to promote a pedestrian-oriented “village” or “small town” atmosphere, rather than focusing on residential density. Strip commercial development (integrated centers setback from rights-of-way by parking areas), large-scale freestanding retail uses and heavy industrial development are generally inappropriate within this land use category. The Plan anticipates that this category will typically be designated as a critical area. The Plan also anticipates that development of property with this recommendation would result from a public input process.

Wanamaker Wanamaker

Office Commercial Uses

This land use category is for low-intensity office uses, integrated office development and compatible office-type uses. Retail uses are not promoted in this category, unless those uses are significantly subordinate to the primary office use or the retail use exclusively serves an abundance of office uses in proximity to the retail use. Office Commercial Uses can exist either as buffers between higher intensity land uses and lower intensity land uses or as major employment centers. The following uses are representative of this land use category: medical and dental facilities, education services, insurance, real estate, financial institutions, design firms, legal services, day care centers, mortuaries, and communications studios.

Community Commercial Uses

This land use category is for low-intensity retail commercial and office uses, which serve a predominantly residential market adjacent to, or very near, the location of the use. The uses in this land use category are designed to fulfill a broad range of retail, personal, professional and business services and are either freestanding or part of a small integrated center typically anchored by a grocery store. These centers contain no, or extremely limited, outdoor display of merchandise. Generally, these uses are consistent with the following characteristics:

Maximum Gross Floor Area: 125,000 square feet

Maximum Acreage: 25 acres

Service Area Radius: 2 miles

Location: On an arterial or at the intersection of an arterial with a collector.

Maximum Outlots: 3

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Regional Commercial Uses

This land use category is for general commercial and office type uses, which serve a market that encompasses several residential neighborhoods or communities. The uses in this land use category tend to benefit greatly from major business grouping and regional-sized shopping centers; therefore, this land use category may consist of a collection of relatively large freestanding commercial uses and integrated centers. These uses are generally characterized by indoor operations, but may have accessory outdoor operations limited to approximately 5 to 10 percent of a use’s gross floor area. Generally, these uses are consistent with the following characteristics:

Maximum Gross Floor Area: 1,000,000 square feet

Service Area Radius: 15 miles

Location: On a primary arterial near the intersection with a secondary or primary arterial.

Maximum Outlots: As needed.

Heavy Commercial

This land use category is for general commercial and related office type uses. The uses in this land use category tend to exhibit characteristics that are not compatible with less intensive land uses and are predominantly devoted to exterior operations, sales and display of goods; such as automobile sales and heavy equipment sales.

Location: On a primary arterial

Light Industrial

This land use category consists of industrial uses, which are conducted within enclosed structures and which may have no, or extremely limited outdoor storage requirements. Those industrial uses that require no outdoor storage can be considered appropriate buffers, provided the use does not exhibit characteristics incompatible with less intensive land uses. This category, regardless of the amount of outdoor storage, is considered an appropriate buffer between general industrial uses and less intensive land uses. Light industrial uses should create minimal impact on adjacent property.

General Industrial

This land use category consists of industrial uses, which are intensive and are characterized by outdoor operations, significant requirements for outdoor storage, and/or intense emissions of light, odor, noise and vibration. These uses may have significant impacts that are difficult, expensive or impossible to completely eliminate or buffer from adjacent properties.

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Park

This land use category consists of public or private property designated for active and/or passive recreational amenities.

Centenial & Groff Neighborhood Park Winding River Golf Course

Linear Park

This land use category consists of public or private property designated for active and/or passive recreational amenities and is primarily used for the passage of people or wildlife. Typical examples are greenways and parkways

Pleasant Run Greenway Monon Rail-Trail

Special Use

This land use category consists of a variety of public, semi-public and private land uses that either serve a specific public purpose (such as schools, churches, libraries, neighborhood centers and public safety facilities) or are unique uses exhibiting significant impacts on adjacent property (such as the Indianapolis International Airport, Indiana State Fair, and Indianapolis Motor Speedway).

Franklin Township Branch Library Fire Station

Airport Related Mixed-Use

This land use category consists of commercial and industrial land uses that are considered complementary to airport development but do not exhibit characteristics incompatible with sensitive land uses. This land use category is intended as a buffer between airports and more sensitive land uses. All residential development is inappropriate within this district.

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Floodway

This land use classification consists of areas within the floodway. These areas exhibit a great potential for property loss and damage or for water quality degradation and should not be developed. Nonconforming uses currently within a floodway should not be expanded or altered. For residential density calculations, property within this category is recommended for zero units per acre.

Secondary Land Use Classification

Environmentally Sensitive

This secondary land use classification consists of land possessing special environmental or potentially valuable natural characteristics that require careful attention with regard to development proposals. Steeply sloped areas, high-quality woodlands, wetlands, significant aquifers, or other waterbody resources are examples of this designation.

CIRCL Central Indiana Regional Community Appendix D: Acronyms League

CIRTA Central Indiana Regional Transit Alliance ABC Administrative Building Council CMS Congestion Management System ADA Americans with Disabilities Act CPTED Crime Prevention Through ADT Average Daily Traffic Volume Environmental Design

APA American Planning Association COLAP Community Organizations Legal Assistance Project, Inc. BAA British Airports Authority, Indianapolis LLC CPS Comprehensive Plan Segment

BAGI Builders Association of Greater CSC Community Service Council Indianapolis CSO Combined Sewer Overflow BMP Best Management Practices CUPE Center for Urban Policy and the BMT Indiana Business Modernization Environment and Technology Corporation DMD Department of Metropolitan CAI Community Associations Institute Development

CBD Central Business District DMS Development Monitoring System

CCI Community Centers of Indianapolis DOP Division of Planning

CDBG Community Development Block DPR Department of Parks and Grant Recreation

CDC Community Development DPS Department of Public Safety Corporation DPW Department of Public Works CDFS Division of Community Development and Financial EEO Equal Employment Opportunity Services EIS Environmental Impact Statement CEF Community Enhancement Fund FLIP Fund for Landmark Indianapolis CHIP Coalition for Homelessness Properties Intervention and Prevention GIPC Greater Indianapolis Progress CIB Capital Improvement Board Committee

CICF Central Indiana Community GIS Geographic Information System Foundation GO Bond/General Obligation Bond CICP Central Indiana Corporate Partnership

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HHMC Health and Hospital Corporation of IPA American Planning Association, Marion County Indiana Chapter HLFI Historic Landmarks Foundation of Indiana IPD Indianapolis Police Department

HMDA Home Mortgage Disclosure Act IPIC Indianapolis Private Industry Council HOA Home Owners’ Association IPTC Indianapolis Public Transportation HRC Home Repair Collaborative Corporation

HUNI Historic Urban Neighborhoods of IRB Industrial Revenue Bond Indianapolis IRTADS Indianapolis Regional IAA Indianapolis Airport Authority Transportation and Development Study IACED Indiana Association for Community Economic Development IRTC Indianapolis Regional Transportation Council ICND Indianapolis Coalition of Neighborhood Development IRTIP Indianapolis Regional Transportation Improvement ICVA Indianapolis Convention and Program Visitors Association IT Information Technology IDI Indianapolis Downtown Incorporated ITP Indiana Technology Partnership

IHA Indianapolis Housing Agency IUA Indianapolis Urbanized Area

IHFA Indiana Housing Finance Authority IUPUI Indiana University Purdue University of Indianapolis IHPC Indianapolis Historic Preservation Commission KIB Keep Indianapolis Beautiful, Inc.

IHTF Indianapolis Housing Task Force LISC Local Initiatives Support Corporation ILP Improvement Location Permit MAC Mayor’s Action Center IMAGIS/Indianapolis Mapping and Geographic Infrastructure System MAGIC Metropolitan Association of Greater Indianapolis Communities IMCPL Indianapolis-Marion County Public Library MCANA/Marion County Alliance of Neighborhood Associations INHP Indianapolis Neighborhood Housing Partnership MCCOY/Marion County Commission on Youth INRC Indianapolis Neighborhood Resource Center MCSD Marion County Sheriff ’s Department

MCSWCD/Marion County Soil and Water TDR Transfer of Development Rights Conservation District TEA-21 Transportation Equity Act MDC Metropolitan Development Commission TIF Tax Increment Financing

MECA Metropolitan Emergency TIS Traffic Impact Study Communications Agency TMS Transportation Monitoring System MIBOR Metropolitan Indianapolis Board of Realtors TND Traditional Neighborhood Design

MPA Metropolitan Planning Area TSM Transportation System Management MPO Metropolitan Planning Organization UBC Uniform Building Code

MSA Metropolitan Statistical Area UDAP User Defined Area Program

MTCI Manufacturing Technology Center UDAT Urban Design Assistance Team at Indianapolis, Incorporated UEA Urban Enterprise Association NAICS North American Industrial Classification System UEZ Urban Enterprise Zone

NAP Neighborhood Assistance Program ULI Urban Land Institute

NEI Neighborhood Empowerment UST Underground Storage Tank Initiative

NIMBY Not in My Back Yard

NPI Neighborhood Preservation Initiative

PDR Purchase of Development Rights

PUD Planned Unit Development

RC Regional Center

REIT Real Estate Investment Trust

RTP Regional Transportation Plan

SAVI Social Assets and Vulnerability Indicators

SMSA Standard Metropolitan Statistical Area

SRO Single Room Occupancy

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and commercial facilities where expansion or redevelopment Appendix E: Glossary is complicated by real or perceived environmental contamination.

Builders Association of Greater Indianapolis (BAGI): BAGI Planning and Community Development offers a builders referral service and provides for customer Related Terms and Acronyms complaint procedures involving member building contractors and construction companies who build or remodel homes.

The primary source of information used to Building Codes: Local government regulations that prescribe prepare this glossary was the Division of minimum standards for the construction and maintenance of buildings. Planning Owner’s Manual. Building Permit: A permit issued by the Division of Permits Administrative Building Council (ABC): An agency of state of the Department of Metropolitan Development. Various government that has responsibility for assuring construction types of building permits authorize structural, electrical, of safe buildings. ABC prepares all statewide building heating and cooling, plumbing, or wrecking work codes. It reviews construction plans for all buildings except family farm buildings and one- or two-family dwellings. Capital Improvement Board (CIB): A board that The agency also performs inspections when requested by a is empowered to finance and manage public capital local governmental unit. Building codes are adopted and improvements in Marion County. Examples are the staff activities are directed by a 13-member council that is Convention Center and RCA Dome, Victory Field, Market appointed by the Governor. Square Arena, and the new Conseco Fieldhouse.

Affordable Housing: A housing unit (owned or rented) that Center for Urban Policy and the Environment (CUPE): costs the occupants less than 30% of the occupant’s income. A part of Indiana University that has a mission to work Numbers vary based on family size. with state and local governments and their associations, neighborhood and community organizations, community American Planning Association (APA): The American leaders, and business and civic organizations in Indiana to Planning Association and its professional institute, the identify issues, analyze options, and develop the capacity to American Institute of Certified Planners, are organized to respond to challenges. advance the art and science of planning and to foster the activity of planning -- physical, economic, and social -- at the Central Business District (CBD): A term generally used to local, regional, state, and national levels. The objective of describe the heart of an urban downtown. In Indianapolis, the Association is to encourage planning that will contribute the U.S. Census defines the CBD as Census tracts 3541, to public well-being by developing communities and 3542, 3543, 3562, and 3563. environments that meet the needs of people and society more effectively. The Indiana Planning Association (IPA) is the Central Indiana Community Foundation (CICF): A Indiana chapter of the APA collaborative effort between the Indianapolis Foundation and Hamilton County Legacy Fund since 1997, CICF is Americans with Disabilities Act (ADA): The Americans with committed to improving and strengthening the communities Disabilities Act gives civil rights protections to individuals of the Indianapolis metropolitan region. The concept of with disabilities similar to those provided to individuals CICF is to build, over time, substantial endowment funds on the basis of race, color, sex, national origin, age, and for central Indiana communities through contributions large religion. It guarantees equal opportunity for individuals and small. For more information, contact the Central Indiana with disabilities in public accommodations, employment, Community Foundation at 634-CICF. transportation, state, and local government services, and telecommunications. The Title I employment provisions Central Indiana Corporate Partnership (CICP): The apply to private employers, state, and local governments, Central Indiana Corporate Partnership a forum for CEOs for employment agencies, and labor unions. Employers with setting broad priorities for initiatives affecting the growth and fifteen or more employees are covered. vitality of the region and to direct corporate resources toward those initiatives that will have the most positive impact on Average Daily Traffic Volume (ADT): The average number the identified priorities. The CICP was formally organized of vehicles passing a specific point during a 24-hour period. in July, 1999 as a successor organization to the Corporate Community Council. Members include CEOs from a Benchmark: A point of reference from which measurements geographic region that includes Bloomington, Lafayette, are made. Anderson, Muncie, Columbus, Shelbyville, Carmel, and Indianapolis. British Airports Authority (BAA), Indianapolis LLC: Since 1995 the BAA Indianapolis LLC has had full operating Central Indiana Regional Community League (CIRCL): A responsibility for the six airports owned by the Indianapolis general citizen-based organization that provides the means Airport Authority. The BAA Indianapolis LLC is a subsidiary for citizens to have input into the decisions affecting quality of BAA plc, the private company which owns and operates of life issues in central Indiana. Even though the group seven airports in the United Kingdom has only been in operation for a year, CIRCL already has a Brownfield: Abandoned, idled, or under utilized industrial membership of 330 groups and individuals.

Central Indiana Regional Transit Alliance (CIRTA): An construction, and commercial revitalization projects. informal group that exists to explore transit options for Community Enhancement Fund (CEF): A program Central Indiana and foster efforts between counties and administered through the Greater Indianapolis Progress municipalities in the region to cooperatively address transit Committee (GIPC). CEF provides a source of funding for needs. community projects.

Charrette: An intensive design session conducted in a Community Organizations Legal Assistance Project, Inc. workshop atmosphere. The Division of Planning has (COLAP): An agency that empowers low income people participated in a number of charrettes. by facilitating the delivery of needed pro-bono legal services and other technical assistance to nonprofit community Cluster Development: A grouping of homes on part of a organizations serving low-income neighborhoods. property while maintaining a large amount of open space on the remaining land. By grouping houses on small sections Community Service Council (CSC): The community of a large parcel of land, cluster development can be used to planning arm of the United Way that also provides problem- protect open space. solving, data resources, and legislative information concerning human services in Marion and adjacent counties. Coalition for Homelessness Intervention and Prevention (CHIP): A coalition of many different organizations and Comprehensive Plan Segment (CPS): A segment of the individuals working together to establish homeless prevention Comprehensive Plan for Marion County. Comprehensive programs and help keep families from losing their homes. plan segments become a part of City policy when adopted by the Metropolitan Development Commission. Adopted Code Enforcement: The enforcement of City health and Comprehensive plan segments have CPS numbers assigned safety codes. In 2000 the City of Indianapolis launched to them. Examples of comprehensive plan segments are an aggressive, targeted strategy to enforce City these codes. neighborhood plans, township plans, corridor plans, park The coordinated effort includes the Marion County Health master plans, and the Official Thoroughfare Plan. and Hospital Corporation and the Indianapolis Police Department, as well as several City departments. Congestion Management System (CMS): A system that identifies locations of traffic congestion and provides methods Combined Sewer Overflow (CSO): An overflow of the to monitor it. Methods of mitigating negative impacts combined sanitary and storm sewers, usually during periods are recommended. The CMS replaced the Transportation of heavy rain. Management System.

Community Associations Institute (CAI): CAI is a national, Consolidated Plan (CP): The application for federal funds nonprofit 501(c)(6) association created in 1973 to provide for the Community Development Block Grant, HOME education and resources to America’s 231,000 residential Investment Partnership, and Emergency Shelter Grant. condominium, cooperative and homeowner associations In addition, it is the five-year strategy for housing and and related professionals and service providers. The Institute community development, and it is the one-year action plan is dedicated to fostering vibrant, responsive, competent for use of the funds listed above. community associations that promote harmony, community, and responsible leadership. Continuum of Care or Support Continuum: A concept for comprehensively dealing with issues related to the homeless Community Centers of Indianapolis (CCI): An agency population. HUD has supported the continuum of care that coordinates the efforts of multi-service and community concept through the McKinney Act programs. Fundamental centers in Indianapolis. The centers offer a vast array of components consist of prevention strategies, an emergency human services to bring programs to people of all ages; to shelter and assessment effort, transitional housing and link up social, cultural, educational, and recreational needs; necessary social services, and permanent housing or and to offer solutions that enrich the community. permanent supportive housing arrangements.

Department of Metropolitan Development (DMD): A City Community Development Block Grant (CDBG): As an department that plans and implements projects and services entitlement city, Indianapolis annually receives HUD- focused on jobs, economic development, affordable housing, sponsored CDBG moneys. Eligible programs and and the empowerment of neighborhoods through citizen projects include a wide range of community and economic participation. development activities aimed at revitalizing decayed urban areas and benefiting low- and moderate-income persons. Department of Parks and Recreation (DPR) or Indy Parks: Indianapolis receives approximately $11million in CDBG A City department with responsibility for the acquisition, funds each year. The grants management team of the improvement, and upkeep of the city’s parks. Also DPR Division of Community Development and Financial Services facilitates sports and recreation programs for the residents administers these funds for the City. of Indianapolis.

Community Development Corporation (CDC):A nonprofit Department of Public Safety (DPS): A City department organization usually established by concerns citizens who that maintains order and protects the rights and property reside in a decaying or blighted neighborhood. The purpose of Indianapolis citizens. The department’s divisions include of the organization is to engage in development activities; Police, Fire, Emergency Management Planning, Animal such as homeowner repair, home rehabilitation, new home Control, and Weights and Measures.

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Department of Public Works (DPW): A City department who reside within these areas. Indianapolis was awarded that plans, designs, and constructs streets and roads in enterprise community designation for an area located within Marion County and is responsible for sanitation, including several central city neighborhoods including all or portions trash pickup and sewage disposal. DPW is also responsible of Highland-Brookside, Martindale- Brightwood, Citizens, for planning infrastructure and designing sanitary and storm Near North, Mapleton-Fall Creek, United North East, and water systems, wastewater treatment systems, drains and UNWA. levees, and completing flood control projects. Other activities include wastewater treatment and disposal, maintenance of Enterprise Zone: See Urban Enterprise Association below. infrastructure, street maintenance, and the protection of City environmental resources. Environmental Impact Statement (EIS): An analysis of certain existing or proposed developments to determine their Development Monitoring System (DMS): A system of impact on the surrounding environment. information gathered from the City’s permit processes. Information available from the Development Monitoring Equal Employment Opportunity (EEO): Employment that System includes the: 1.) number of housing, commercial, does not discriminate against any employee or job applicant and industrial permits issued; 2.) number of new and because of race, color, religion, national origin, sex, physical demolished housing units listed by single, duplex, multi- or mental handicap, or age. family, and condominiums construction type; 3.) amount of new retail, office, and other commercial space; 4.) amount of Excluded Cities and Towns: The three cities of Beech Grove, new manufacturing and warehouse space; 5.) value of new Lawrence, and Southport and the town of Speedway that commercial and industrial space; and 6.) value of the total were not annexed into the Consolidated City of Indianapolis. demolished commercial space. Information is not available for the cities of Beech Grove, Lawrence, Speedway, and Family Service Association of Central Indiana, Inc. (FSA): Southport. The Division regularly prepares housing starts A not-for-profit social services agency that provides family- and losses and other similar reports based on the DMS focused professional counseling and support to troubled information. families and individuals throughout the life cycle.

Division of Community Development and Financial Services (CDFS): A division of the Department of Metropolitan Fannie Mae: Fannie Mae is a New York Stock Exchange Development with responsibility for seeking federal grants company and the largest non-bank financial services company and other funds and monitoring their use in community in the world. It operates pursuant to a federal charter and is development efforts. Also CDFS is responsible for the City’s the nation’s largest source of financing for home mortgages. participation in certain human service programs and for Fannie Mae is working to shrink the nation’s “homeownership supporting the Department’s budgetary and financial needs. gaps” through a $2 trillion “American Dream Commitment” to increase homeownership rates and serve 18 million targeted American families by the end of the decade. Division of Neighborhood Services: A division of the Department of Metropolitan Development that includes the Federal Fair Housing Law: In accordance with the Federal Mayor’s Action Center and the Township Administrators. Fair Housing Act Amendments of 1988, this law states it is illegal to discriminate in housing on the basis of race, color, Division of Permits: A division of the Department of religion, sex, handicap, family status, or national origin. Metropolitan Development that is responsible for assuring that construction activity in the city complies with state and Fund for Landmark Indianapolis Properties (FLIP): A municipal building standards. fund that Historic Landmarks Foundation has established to acquire historic properties. Historic Landmarks resells these Division of Planning (DOP): A division of the Department of properties to buyers devoted to preserving them. Historic Metropolitan Development that administers subdivision and Landmarks remains involved after the sale to provide zoning regulations, updates zoning ordinances in its Current technical assistance and restoration advice to the buyers, and Planning Section and analyzes community conditions, makes to monitor any proposed changes to the structure to ensure projections, and recommends plans for private and public they are in keeping with its historic integrity. projects in its Long Range Planning Section. General Obligation Bond (GO Bond): A type of local Eminent Domain: The right of a government to acquire the government bond that can be used for a variety of projects. lands and rights necessary for a public use if the government Proceeds of GO bonds can be issued either directly for is unable to agree with the owner on damages or the purchase economic development purposes or indirectly by providing price. The government may exercise eminent domain to for infrastructure improvements. The issuance of GO bonds condemn the land or right necessary to carry out a public requires approval of taxpayers located within the boundaries use. of the unit issuing the debt.

Empowerment Zones: See Enterprise Communities below. Geographic Information System (GIS): A means of producing, analyzing, and storing computerized maps. See Enterprise Communities: The Revenue Reconciliation Act of Indianapolis Mapping and Geographic Infrastructure System 1993 authorized certain tax incentives to businesses located below. within designated distressed areas in order to stimulate economic activity and to encourage the hiring of individuals

Goal: The end toward which planning and development spend members’ monthly dues. efforts are directed. Goals are broad based in nature, but they are more refined than values. Home Repair Collaborative (HRC): A partnership where members work together to coordinate systematic repair Greater Indianapolis Progress Committee (GIPC): services for low-income homeowners in some of the older Established in 1965, GIPC is a non-partisan organization of areas of Indianapolis. Types of home repair activities that can business, civic, religious, and educational leaders that advises be completed by the various partners of the HRC include the mayor on community concerns. roofing repairs, plumbing, electrical, and flooring and ceiling repairs. Grants, low interest loans and loan counseling are Health and Hospital Corporation of Marion County available through the partners of the HRC for these types of (HHMC): A municipal corporation that operates the work. The HRC also offers weatherization services, painting Marion County Health Department and Wishard Memorial and other exterior improvements at no charge for those who Hospital and its health services. The corporation is governed qualify. by a seven-member board of trustees whose members are appointed by the Mayor of Indianapolis, the City-County HOPE VI: A U.S. Department of Housing and Urban Council and the County Commissioners. Board members are Development demonstration program in the Nearwestside appointed to four-year terms. neighborhood. The program provides an alternative to traditional public housing complexes by developing scattered Historic Urban Neighborhoods of Indianapolis (HUNI): site assisted housing units with support services. These A coalition of organized neighborhoods including historic houses are first offered for sale to public housing residents. preservation as a part of their agenda and whose purpose it is to: 1.) provide a forum for the exchange, gathering Household: A household includes all the persons who occupy and dissemination of information, ideas, and experiences a housing unit. The occupants may be a single family, one between the various neighborhood associations; 2.) interface person living alone, two or more families living together, or with the local and regional governmental units; and 3.) to any other group of related or unrelated persons who share act as a vehicle for implementing positive changes in the living arrangements. neighborhoods. Housing Starts and Losses: See Development Monitoring Historic Landmarks Foundation of Indiana (HLFI): A System above. statewide, private, non-profit, membership-supported organization established to promote the preservation and Housing Units: A housing unit is a house, an apartment, a restoration of Indiana’s architectural and historic heritage. mobile home or trailer, a group of rooms or a single room The Indianapolis Regional Office endeavors to meet the occupied as separate living quarters or, if vacant, intended for preservation needs of Marion County through advocacy occupancy as separate living quarters. Separate living quarters and education. In addition to preparing the Marion are those in which the occupants live and eat separately from County historic structures inventories, preparing National any other persons in the building and which have direct access Register nominations, and providing technical assistance, the from outside the building or through a common hall. Indianapolis Regional Office also operates a revolving loan fund. Improvement Location Permit (ILP): A “zoning clearance” permit issued by the Division of Permits of the Indianapolis HOME: A program that was enacted as Title II of the Department of Metropolitan Development. Generally an National Affordable Housing Act of 1990. It is administered ILP is required when a new structure is built, the bulk of by the U.S. Department of Housing and Urban Development. an existing structure is increased, or a change in the use of The purposes of HOME are to expand the supply of decent, property causes an increase in parking requirements. affordable housing for low- and very low-income families; to build local capacity to carry out affordable housing programs; Indiana Association for Community Economic Development and to provide for coordinated assistance to participants in (IACED): A statewide nonprofit association for the development of affordable low-income housing. The organizations who rebuild distressed communities. Activities grants management team of the Division of Community include housing rehabilitation and construction; employment Development and Financial Services administers these funds generation; real estate, industrial, and small business for the City. development; and social services.

Home Mortgage Disclosure Act (HMDA): A Federal Indiana Business Modernization and Technology Corporation Reserve regulation requiring depository institutions to make (BMT): Indiana BMT is a full service resource providing annual disclosure of the location of certain residential loans, business, manufacturing and technology assistance to small- to determine whether depository institutions are meeting and medium-sized Indiana businesses. Through a set of the credit needs of their local community. The Division of fourteen regional offices (hosted by chambers of commerce Planning receives information from this reporting process and or economic development groups) BMT provides technical can produce reports based the information. assistance to a variety of Indiana firms and industries.

Home Owners’ Association (HOA): A Home Owners’ Indiana Coalition for Human Services (ICHS): ICHS is Association oversees how the common areas of a building an association of organizations working to develop and or subdivision are maintained and regulated, including promote comprehensive human services for Indiana residents everything from paying hazard insurance to cleaning the pool by influencing public policy. Emphasis is given to human to collecting the garbage. The association also decides how to services that benefit low income and vulnerable persons.

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Indiana Housing Finance Authority (IHFA): A state agency institutions, the Foundation is one of the largest community which assists localities by making lower rate mortgage money foundations in the country. Nearly $180 million in permanent available to first time home buyers and also by administering assets have come from gifts and bequests from thousands of the state (HUD-funded) HOME Program and some CDBG generous charitable citizens in the Indianapolis community. affordable housing activities. The Indianapolis Foundation has been making significant grants in the community since the early 1920s. It has always Indiana Technology Partnership (ITP): ITP’s vision is been devoted to the widest range of charitable interests. A to establish Indiana as the nationally recognized leader in publicly appointed board of six members who serve six-year technology in the Midwest by 2005. ITP intends to function terms governs the Foundation. as a catalyst for technology initiatives throughout Indiana by convening key partners across this state in the public Indianapolis Historic Preservation Commission (IHPC): A and private sectors. ITP’s initial focus will be on increasing nine-member mayor-appointed board. The mission of the venture capital, improving infrastructure and public policies, IHPC and its professional staff is to work in cooperation and ensuring that qualified workers are available. with the City of Indianapolis to preserve both the character and fabric of historically significant areas and structures. The Indiana University Purdue University of Indianapolis IHPC has jurisdiction over ten locally designated historic (IUPUI): A university located in downtown Indianapolis areas. In addition, the Commission has jurisdiction over that offers degrees from both Indiana University and Purdue three conservation districts. University. Indianapolis Home Challenge Fund: The Indianapolis Home Indianapolis Airport Authority (IAA): A body formed Challenge Fund is being developed as a program aimed at to administer and develop an air transportation system for establishing a comprehensive approach to securing resources Marion County and Central Indiana. for increasing access to affordable housing. The fund will be designed to support current providers and develop initiatives Indianapolis Arts Council: The Arts Council of Indianapolis to fill gaps. The program will work with extremely low builds the community through the arts by developing visibility, income, low-income renters/first time homebuyers, and low funding, audiences, information, and partnerships. Supports to moderate-income homeowners. Indianapolis-area arts organizations and approximately 50 local artists through a variety of services. Indianapolis Housing Agency (IHA): An agency which maintains and operates eight housing complexes for low- Indianapolis Chamber of Commerce: The mission of the income families and five apartment buildings for low-income Indianapolis Chamber of Commerce is to solve problems Marion County residents who are elderly or disabled. on behalf of its members and to be a leader in advocating solutions for all businesses in Indianapolis and Central Indianapolis Housing Task Force (IHTF): A broad based Indiana. The Chamber represents the business community committee begun work in 1998 to discuss and make policy on issues such as education reform, workforce initiatives, recommendations regarding a wide range of topics. Their economic development, and infrastructure enhancement. list of topics includes welfare to work, jobs in housing, transitional housing, HUD changes and how they may affect Indianapolis Coalition of Neighborhood Development (ICND): the city, and income diversification in housing. An association of Indianapolis community development corporations (CDCs) which facilitates the comprehensive Indianapolis Mapping and Geographic Infrastructure System redevelopment of Indianapolis center city neighborhoods by (IMAGIS): The computerized map of Marion County that, promoting communication, collaboration and cooperation when complete, will include information on soils, topography, among CDCs. ICND, through its 16 members, links CDCs zoning, utilities, and tax assessment for all parcels. with one another, with their institutional partners, and with the residents of Indianapolis neighborhoods to build Indianapolis-Marion County Public Library (IMCPL): economic opportunities and a strong community for all. The first public library in Indianapolis was opened in the downtown area in 1873. Today the library has twenty-one Indianapolis Convention and Visitors Association (IVCA): branches and a bookmobile service providing information An agency with the mission to enhance the economic to all of Marion County. The library offers a wide range of fabric and quality of life of Greater Indianapolis. This is materials and programs, not only to the over one half million accomplished by marketing the area as a destination for Marion County residents registered as borrowers, but to conventions, trade shows, other business meetings and for others throughout central Indiana. pleasure travel, assisting member businesses in marketing their facilities, products and services to these same clients and Indianapolis Neighborhood Housing Partnership (INHP): servicing the needs of all visiting groups and individuals. An agency that works to expand the supply of quality, affordable housing through leveraging public and private Indianapolis Downtown, Incorporated (IDI): An agency resources. INHP provides home ownership training, housing created with the mission to address, in partnership with the counseling, low cost loans, and serves as the coordinating public and private sectors, critical issues that affect the growth, body for the community development corporations in the well-being and user-friendliness of downtown Indianapolis. city.

Indianapolis Foundation: When the Indianapolis Foundation Indianapolis Neighborhood Resource Center (INRC): was created in 1916, it was one of a very few such trusts in Works to strengthen the capacity of neighborhood-based America. Now a member of a family of hundreds of such organizations to effect positive change in their communities

through training, support, and technical assistance. Development (ICND). The Indianapolis UEDI has three primary goals. First, it provides new specialized staffing to Indianapolis Parks Foundation: A nonprofit organization several neighborhoods to encourage and broker commercial established in December to enhance the recreational, real estate deals and organize merchant associations. educational and cultural life of the Indianapolis community Second, it provides a significant pool of funds for loans by encouraging and soliciting support for the parks system. and predevelopment grants to be used by community-led A 15-person board of directors who are representative of the development groups to make the once neglected infrastructure corporate, foundation and Indianapolis community at large an attractive alternative for businesses to relocate or grow their governs the Foundation. current ventures. Third, it provides an opportunity to study these markets with the most sophisticated economic research Indianapolis Police Department (IPD): The police methods available while at the same time empowering local department serves an area roughly coincident with the old merchant associations and neighborhood groups to embrace city limits for the City of Indianapolis. IPD is a part of the a new language, based on these results, to aggressively Department of Public Safety. communicate the market assets of the community to any potential entrepreneurs. For more information contact any Indianapolis Private Industry Council (IPIC): A business- of the partner agencies. led organization serving as advisor, advocate, and agenda- setter for workforce development in Marion County, with Indianapolis Urbanized Area (IUA): Census tracts in central interest in maintaining and increasing the economic vitality Indiana that were identified as a part of the 2000 Census as of the region. IPIC focuses on the increasing challenges making up urbanized area of Indianapolis. This area is confronting local employers; reflects a pro-business, anti- smaller than the MPA and MSA. See map on page 2. red tape philosophy; seeks to creatively and effectively link job seekers with employers; has more than thirty public, Industrial Revenue Bond (IRB): Private companies may use private, and philanthropic funding sources for planning, industrial revenue bonds for fixed-asset financing. Because administration, and oversight of specific workforce these bonds are tax exempt and offered at a lower rate of development programs; and serves as a broker of workforce interest, they offer savings to the company financing the resources to area service providers. project.

Indianapolis Public Transportation Corporation: See IndyGo: Provides mass transit service to the Marion County IndyGo below. area over fixed routes and uses scheduled times of arrival and departure. Indianapolis Regional Transportation and Development Study (IRTADS): This report prepared in the late 1960s Indy Parks: See Department of Parks and Recreation above. was a cooperative study in which local, state, and federal agencies pooled their financial resources and planning Indy Partnership: A not-for-profit organization working efforts to produce a coordinated and comprehensive plan. as the sales organization to market the Indianapolis region. This plan had the purpose of considering all modes of The Indy Partnership’s mission is to serve as a catalyst for urban transportation and directly relating the planning of increased capital investment and quality job growth in the transportation facilities to the planning of land use. IRTADS Indianapolis region. A division of the Indy Partnership is was designed to provide needed facts to guide the officials of the Marion County Economic Development organization, the various governmental agencies in the investment of public similar to that existing in the other eight partner counties. funds in public work projects and to suggest priorities for This organization participates in existing business expansion needed transportation improvements. and retention initiatives.

Indianapolis Regional Transportation Council (IRTC): A Information Technology (IT): The name given to the business cooperative group composed of all the planning jurisdictions of dealing with computerized information.. within the metropolitan planning area that recommends to the MPO: 1.) policies for the conduct of the transportation Infrastructure: The underlying foundation or basic planning program; 2.) transportation projects involving framework of a city, including streets, parks, bridges, sewers, the federal-aid Surface Transportation Program, and 3.) streetlights, and other utilities. mechanisms for the discussion and resolution of local transportation issues. Keep Indianapolis Beautiful, Inc. (KIB): A not-for-profit Indianapolis Regional Transportation Improvement Program organization formerly known as Indianapolis Clean City. (IRTIP): Presents transportation improvements proposed by KIB is an affiliate of Keep America Beautiful that focuses government and transportation agencies in the Indianapolis on programs such as beautification, education and youth Metropolitan Planning Area for a three year period. The initiatives, litter reduction, and recycling. current IRTIP covers 2002 through the year 2004. Land Bank: A pool of acquired and assembled land in urban Indianapolis Urban Economic Development Initiative areas packaged into sites suitable for redevelopment. (IUEDI): A collaboration between the Indianapolis Chamber of Commerce, the Local Initiatives Support Landmark: An individual, physical element that serves as a Corporation (LISC), and several neighborhood-led reference point in locating a node or district. The Soldiers community development corporations (CDCs) through their and Sailors Monument is a good example of a landmark. association in the Indianapolis Coalition for Neighborhood

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Lilly Endowment: Created in 1937, Lilly Endowment Inc. is Department. a private philanthropic foundation based in Indianapolis. It supports the causes of religion, education, and community Marion County Soil and Water Conservation District development. Areas for which funds are granted include MCSWCD: A subdivision of stage government that religion; elementary, secondary, and higher education; works closely with the City, other agencies, landowners, and community development; and philanthropy. The following developers in Marion County with regard to natural resource types of grants are given: project/program grants, capital issues such as soil, land use, erosion control and water quality. grants, general operating grants, seed money grants, A five-member board that is appointed or elected locally demonstration grants, development grants, training grants, governs the MCSWCD. The MCSWCD provides technical conferences/seminars, challenge/matching grants, fellowships, assistance and consultation to individual landowners that scholarships, awards/prizes, research grants, matching gifts, have problems with drainage, erosion and other natural and technical assistance. resource concerns. The District also provides educational materials and information to adults and teachers regarding Local Initiatives Support Corporation (LISC): The Ford natural resource conservation. Foundation’s subsidiary organization, Local Initiatives Support Corporation, solicits corporate funding to support Mayor’s Action Center (MAC): An agency that assists local non-profit neighborhood redevelopment programs, citizens of Indianapolis and Marion County in contacting housing services, economic development, and technical and soliciting services from the city. The MAC takes service assistance. requests, gives information, and provides regulations regarding abandoned buildings and vehicles, air pollution, Low Income Housing Tax Credits: A federally funded dead animal pick-up, fallen trees and limbs, sewer and program whereby each state is allocated a prescribed amount drainage problems, street and sidewalk maintenance, trash of tax credits every year. The states then issue these tax credits burning and dumping violations, and weed control. to affordable housing developers who in turn sell the tax credits to investors who supply upfront equity for affordable Memorandum of Understanding: A written agreement that rental projects. The investors receive a return on their clarifies the enforcement roles and responsibilities of each investment through a tax credit they can take against their tax agency in areas of shared authority. liability. They can take this credit for 10 years. The developer must guarantee that the units financed with these credits Metro: See IndyGo above. will remain affordable to households earning 60 percent of median family income or less for 15 years. Metropolitan Area: The concept of a metropolitan area (MA) is one of a large population nucleus, together with Main Street Approach: A philosophy for downtown adjacent communities that have a high degree of economic revitalization that focuses on organization, economic and social integration with that nucleus. Some MA’s are restructuring, design, and promotion. The Main Street defined around two or more nuclei. The MA classification Approach was developed by the National Main Street Center. is a statistical standard, developed for use by Federal agencies in the production, analysis, and publication of data on MA’s. Marion County: The county in which the city of Indianapolis The MA’s are designated and defined by the Federal Office of is located. Marion County is 403 square miles and contains Management and Budget, following a set of official published nine townships. The population of Marion County in 1980 standards. was 765,233, in 1990 it was 797,159, and in 2000 it was 860,454 persons. Metropolitan Association of Greater Indianapolis Marion County Cooperative Extension Service: Part of the Communities (MAGIC): A regional organization involving statewide informal educational arm of Purdue University individuals within central Indiana to address issues affecting and part of the national network of Cooperative Extension the business climate. Services. County Extension staff help local people gather Metropolitan Development Commission (MDC): The knowledge and put that knowledge to work on the job, at policy-making body of the Department of Metropolitan home, and in the community. Development. It has nine appointed members who serve a one-year term. Marion County Alliance of Neighborhood Associations (MCANA): An voluntary organization of neighborhood Metropolitan Emergency Communications Agency (MECA): associations in Marion County created to deal with common The agency that handles all emergency communications for issues. Marion County.

Marion County Commission on Youth (MCCOY): A non- Metropolitan Indianapolis Board of Realtors (MIBOR): A profit agency identifying youth needs and setting priorities, voluntary trade association for Indianapolis area real estate convening diverse entities in order to solve problems, professionals. advocating on behalf of youth services, working with other coordinating efforts, serving as a clearinghouse, and planning Metropolitan Planning Area (MPA): The portion of central for special events. Indiana that is expected to be urbanized in the next twenty years. It is the area studied by the MPO and includes all of Marion County Sheriff ’s Department (MCSD): The police Marion County and portions of the surrounding counties agency for the portions of Marion County outside the including the cities of Beech Grove, Indianapolis, Lawrence, excluded cities and not covered by the Indianapolis Police Southport, and the town of Speedway. The boundary also

includes portions of Hamilton, Boone, Hendricks, Johnson, New Urbanism: Community design that borrows from and Hancock counties, including the municipalities of Fishers, traditional city planning concepts, particularly those of the Westfield, Whiteland, New Whiteland, and the cities of years 1900-1920, and applies them to modern living. New Carmel, Zionsville, Brownsburg, Plainfield, and Greenwood. urbanism integrates housing, shops, workplaces, parks, and This area is larger than the IUA. civic facilities into close-knit communities that are walkable and have ready access to transit. Andres Duany, Elizabeth Metropolitan Planning Organization (MPO): The Plater-Zyberk, and Peter Calthorpe are considered the Department of Metropolitan Development is the designated pioneers of this method of community design. MPO for the Indianapolis Metropolitan Planning Area. The MPO has the responsibility, together with the state and North American Industrial Classification System (NAICS): IPTC, for the continuing, cooperative, and comprehensive The NAICS is a system of employment classification transportation planning process required of urbanized areas developed for the purpose of facilitating the collection, to qualify for federal transportation funds. tabulation, presentation, and analysis of data relating to employment and for promoting uniformity and comparability Metropolitan Statistical Area (MSA): A definition of in the presentation of statistical data collected by various central Indiana used to report Census information. Counties agencies of the United States Government, state agencies, included in the MSA are Boone, Hamilton, Hancock, trade associations, and private research organizations. The Hendricks, Johnson, Madison, Marion, Morgan, and Shelby. NAICS is intended to cover the entire field of economic The MSA was formerly called the Standard Metropolitan activities. Statistical Area or SMSA. Madison County has been added to the MSA since the 1990 Census was prepared. The MSA Not in My Back Yard (NIMBY): Land uses that most had a 1980 population of 1,166,575, a 1990 population of people don’t want near their homes, such as power plants 1,249,822, and a 2000 population of 1,607,486 persons. and junkyards.

Mobile Dwelling: A land use plan category recommending Objective: A quantifiable refinement of a goal or means of a density of approximately six dwelling units per acre. achieving a goal. Objectives often relate to more than one Development may be in the form of a mobile home park. goal.

Multiple Family Development: Housing units in a structure Ozone Awareness Program: A public information program containing three or more housing units. of the MPO staff with the purpose of helping to educate the public about the ozone program and enlisting their Neighborhood Assistance Program (NAP): An innovative aid in dealing with the issue. The campaign includes a tool for raising funds for community projects. Through this wide range of educational components such as brochures, state-funded program, any business or individual can receive radio and television spots, an information line (327-4247), tax credits for donations to qualifying projects. various public relations activities, a KNOZONE web page (www.knozone.com), and reduced transit fares on weekday NOZONE Action Days. The goal is to have cleaner air in Typically, qualifying NAP projects focus on: low- and Indianapolis and avoid the further federal regulations that moderate-income housing, counseling services, day care, may be imposed if air quality is not improved. emergency assistance, housing facilities, job training, medical care, recreational facilities, downtown rehabilitation, and Planned Unit Development (PUD): A development which, neighborhood commercial revitalization. for zoning approval purposes, is not judged by typical zoning standards but on the basis of an overall plan for the total Neighborhood Empowerment Initiative (NEI): A series of development. To be approved by the zoning review agency, programs in the 90s that were designed to strengthen several the plan must include detailed information regarding such low-income neighborhoods located in the core of Indianapolis. issues as land use, building height, density, and setbacks at the These projects consisted of the development of neighborhood overall edge of the development. umbrella associations, creation of neighborhood coordinator positions, and the allocation of a portion of Community Polis Center, The: A research center of Indiana University- Development Block Grant funds to the umbrella associations Purdue University, Indianapolis. Polis deals with issues in for neighborhood projects. religion, education, race relations, social values, social services, information technologies, economic development, and other New Markets Tax Credit: The New Markets Tax Credit areas. The Center works with private citizens, public officials, is available to taxpayers who make equity investments in clergy and parishioners, and with leaders from neighborhood, Community Development Entities which are organizations cultural, historical, and educational organizations. One with track records and expertise in promoting economic of the more significant products from Polis to date is The development in low-income communities. These investments, Encyclopedia of Indianapolis. in turn, may be used to provide a range of financial and technical assistance for economic development services to Program: A proposal with an end product that is not physical promote business growth in low-income communities. in nature but is a plan for dealing with an issue. Programs are direct outgrowths of objectives. With funds derived from the credits, CDEs may make available a range of financial and technical assistance to Project: A proposal with an end product that is physical in private business enterprise in low-income communities. nature. As with programs, projects are direct outgrowths of objectives.

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Purchase of Development Rights (PDR): The voluntary sale of Often an old hotel building is modified to provide one person the right to develop a piece of property by the landowner to a per room, permanent housing. government agency or land trust. The sale price is determined by an appraisal. Landowners retain full ownership and use of Smart Growth: A current trend to deal with sprawl their land for agricultural purposes. Development rights are by channeling development towards existing cities and extinguished in exchange for compensation. towns, preserving farms and natural areas, supporting car- independent living, and revitalizing existing neighborhoods. Quality of Life: The attributes or amenities that combine A number of cities across the country have Smart Growth to make an area a good place to live. Examples include initiatives. the availability of political, educational, and social support systems; good relations among constituent groups; a healthy Standard Metropolitan Statistical Area: See Metropolitan physical environment; and economic opportunities for both Statistical Area above. individuals and businesses. Social Assets and Vulnerability Indicators (SAVI): The Real Estate Investment Trust (REIT): A publicly traded Community Service Council and The Polis Center have investment trust which invests the capital of its shareholders developed a database of information from sources such as the in real estate. U.S. Census, the Indianapolis Police Department, the Marion County Sheriff ’s Department, the Family and Social Services Redevelopment Area: Areas that are designated for Administration, and the Marion County Health Department. redevelopment by the MDC and administered by DMD. Information in this database can be displayed on a Marion Establishing a redevelopment area allows government to County map. This database includes information about the accomplish a wide variety of public goals. A variety of tools people that live in Marion County and their social condition. can be used in the districts to acquire and assemble land (including eminent domain), prepare it for disposition, write- SWOT Analysis: An analysis that examines the strengths, down acquisition costs, make needed area improvements, and weaknesses, opportunities, and threats of the subject. assist developers and property owners in improving their property. Tax Abatement: A reduction in taxes granted to a property owner in a locally designated Economic Revitalization Area Regional Center (RC): The area bounded by 16th Street who makes improvements to real property or installs new on the north, I-65 and I-70 on the east, I-70 on the south, manufacturing equipment. Used manufacturing equipment and the previously proposed alignment of Harding Street can also qualify as long as such equipment is new to the State improvements on the west. Plans were prepared for this area of Indiana. Equipment not used in direct production, such as in 1970, 1980, and 1990. office equipment, does not qualify for abatement. Land does not qualify for abatement. Regional Transportation Plan (RTP): This plan guides the development of the area’s transportation system for the next Tax Exempt Bonds: Bonds issued on the stock market to raise 25 years. It is developed through the cooperation of citizens, capital for public investments at an interest rate below the planners, engineers, and public officials. market value. Capital gains with these bonds are not taxed by the federal government. Rehab Resource: An agency dedicated to providing building materials for the repair and rehabilitation of existing housing Tax Increment Financing (TIF): A method of raising and the construction of new, affordable housing for low- to additional capital within declared districts to pay for needed moderate-income residents. Donations of high-quality improvements within those districts. The districts are building materials are sought from private businesses, established by the Metropolitan Development Commission. including manufacturers, suppliers and contractors. The The base of existing assessed valuation is frozen with materials are then redistributed to CDCs and other non- the incremental revenues obtained by the taxes on new profit organizations that work on behalf of low- to moderate- development in the TIF District then becoming available to income families. Individuals may get building materials from fund improvement projects. Rehab Resources with a referral from any member agency. There is a nominal handling fee to cover the cost of the Township Administrators: Township Administrators warehouse operations. serve as liaisons between the Department of Metropolitan Development and citizens and citizen organizations. Each TA Rezoning: Changing the zoning on a particular piece of is responsible for one of Marion County’s townships. The property. Township Administrators provide assistance to neighborhood and business organizations and provide information about Section 8 Certificate: Rental assistance for very low income permitting, zoning and variance issues as well as other DMD (50% or less of median family income) or elderly households. projects and programs. Provided by HUD through local housing authorities. Recipients may choose a rental unit that suits their household Traditional Neighborhood Design (TND): Neighborhood needs and only pay 30% of their household income. HUD design that uses the principles of the new urbanism makes up the difference between the 30% and fair market movement. See New Urbanism above. rent. Traffic Calming: Usually a component of traditional Single Room Occupancy (SRO): A method of providing neighborhood design, traffic calming uses physical design housing for homeless people that some cities have used. features, such as street trees, landscaping bump outs, and

textured pavement to slow down automobile traffic passing UNIGOV legislation was divided into three branches similar through neighborhood areas. The intention is to improve to the federal government: the executive branch consisted of the quality of life in urban neighborhoods and to make the Mayor and other administrators; the legislative branch neighborhoods more pedestrian friendly. consisted of the City-County Council; and the judicial branch consisted of the court system. Traffic Impact Study (TIS): An analysis of certain new developments to determine the impact on the surrounding Urban Design Assistance Team (UDAT): A professional transportation system. program of the American Institute of Architects. Through the program, nationally-recognized design professionals Transfer of Development Rights (TDR): A program that are paired with local design professionals, residents, and allows landowners to transfer the right to develop one community leaders in a focused, brainstorming workshop. parcel of land to a more suitable parcel of land. TDR A hallmark of the UDAT process is a focus on community- programs establish “sending area” and “receiving areas” for based planning--involving citizens in the planning and design development rights. of their own community.

Value: An ideal, custom, institution, etc. that the people of a Transportation Equity Act (TEA-21): The landmark society try to achieve. Transportation Equity Act for the 21st Century affirms the priority of improving safety, protecting public health and Variance: Exceptions to current zoning laws. the environment, and creating opportunity for all Americans. The Act provides money for the continued rebuilding of Vision Statement: A vivid, imaginative conception of the America’s highways and transit systems. TEA-21 replaces future. ISTEA. Weed and Seed: A program initiated by the U.S. Department Transportation Monitoring System (TMS): A systematic of Justice in 1992 with the purpose of “weeding out” violent process for the collection, analysis, summary, and retention of crime, drug dealers, gang activity, and restoring neighborhoods roadway related person and vehicular traffic data, including through social and economic revitalization. Neighborhoods public transportation on public highways and streets. The presently involved in the Indianapolis program are WESCO, goal of TMS is to develop a comprehensive compilation of UNWA, Mid-North, NESCO, SUMO, and the Coalition of available transportation and traffic data for the region while Northeast Neighborhoods (CNN). satisfying the intent of the regulations outlined in ISTEA. ISTEA specifies that the TMS shall cover all public roads Wellfield: A tract of land that contains one or more wells except those functionally classified as local or rural minor used for the production of drinking water for the public water collectors or those that are federally owned. supply.

Transportation System Management (TSM): A study that Wetlands: Land that has wet or spongy soil. These areas are looked at ways to maximize the efficiency of the existing often important wildlife habitats. transportation system by relatively low cost means such as signal improvements and turning lanes. TSM has been replaced by the Congestion Management System.

Underground Storage Tank (UST): A storage tank that is buried under the ground similar to ones used at gasoline service stations. Many have been used to store materials that are considered hazardous. New standards require the removal of older tanks that may leak and pollute the surrounding area.

Uniform Building Code (UBC): National building construction standards first developed in 1927 for the purpose of protecting the health and safety of the building occupants. The UBC was designed to create greater safety to the public by providing uniformity in building laws. Topics covered in the code include fire safety, appropriate use of building materials, size of public spaces, and special hazards. The UBC is the basis for the State’s review of certain types of new construction.

UNIGOV: Title 36, Article 3 of the State of Indiana Code detailing the combined governments of the City of Indianapolis and Marion County, Indiana. Effective January 1, 1970, UNIGOV legislation permitted the City of Indianapolis to provide most municipal services county wide. The City Council and the County Council were joined to become the City-County Council. The structure of the

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Regional Center Plan 1990-2010. 21 August Appendix F: Resources 1991.

• Division of Planning and Zoning, Department Enabling Legislation of Metropolitan Development, City of Indianapolis- Marion County. The Comprehensive Plan for • Indiana General Assembly. Annotated Indiana Marion County, Indiana. 16 November 1977. Code, Title 36, Local Government, 36-7-1 to 36-8. West Publishing Company, Saint Paul, Minnesota. • Division of Planning and Zoning, Department of Metropolitan Development, City of Indianapolis- Indianapolis Plans Marion County. The Comprehensive Plan for Marion County, Indiana. 7 March 1984. • Cambridge Systematics, Inc. et. al. Indianapolis • Indianapolis Metropolitan Planning Intermodal Freight System Plan: Final Report. Organization. Indianapolis Regional Bicycle and May 1998. Pedestrian System Plan. Indianapolis, IN. March 2000. • Camp, Dresser and McKee, et. al. Combined Sewer Overflow Long Term Control Plan and • Metropolitan Planning Department of Marion Water Quality Improvement Report. Indianapolis, County, Indiana. The Comprehensive General IN. 30 April 2001. Land Use Plan. 12 May 1965. • The City Plan Commission, City of Indianapolis, • Metropolitan Planning Department of Marion Indiana. Preliminary Master Plan for the City of County Indiana. The Comprehensive General Indianapolis. 27 January 1944. Land Use Plan. November 1969. • The Corradino Group. Regional Mass Transit • Woolpert. Indianapolis Greenways Plan. Service Plan for Central Indiana. December 1999. Indianapolis, IN. May 1994. • The Corradino Group. Update of the Indianapolis Regional Transportation Plan. April 2001. Indianapolis Background Documents • Department of Metropolitan Development, City of Indianapolis. A Growth Policy for Indianapolis. 17 • Arthur Anderson LLP and the Indiana University, September 1980. Global Business Information Network. Executive Summary: A Central Indiana Report Card. • Department of Parks and Recreation, City of Indianapolis. Pathways to the Future: Indianapolis- • Bousman, Lana et. al. An Analysis of Public Marion County Park, Recreation and Open Space Costs and Benefits for Private Residential Plan. June 2000. Development. Indianapolis, IN. 20 December 2000. • Division of Planning, Department of Metropolitan Development, City of Indianapolis-Marion County. • Builder’s Association of Greater Indianapolis. The Comprehensive Plan for Marion County, Government Affairs Policies. 21 October Indiana. 2 October 1991-17 February 1993. 1999. Retrieved on 26 April 2001 from http:// www.bagi.com/smartgrowth/sgrowth.html. • Division of Planning, Department of Metropolitan Development, City of Indianapolis. The Official • Burgess and Niple, Limited. Downtown Thoroughfare Plan for Marion County, Indiana. 7 Indianapolis Transit Center Study. January 1998. July 1999. • Center for Urban Policy and the Environment, • Division of Planning, Department of Metropolitan School of Public and Environmental Affairs, Development, City of Indianapolis. Indianapolis Indiana University. Building the Economic Future.

• Central Indiana Regional Citizen’s League. Issue Committee Report. August 2001. Central Indiana Quality of Life Index. 1999. • Division of Planning, Department of Metropolitan • Central Indiana Regional Citizens’ League. Development, City of Indianapolis-Marion County, Central Indiana Transportation and Land Use Indiana. Land Use Standards and Procedures Vision Plan: Final Recommendations. Indianapolis, Issue Committee Report. August 2001. Indiana. January 2000. • Division of Planning, Department of Metropolitan • The City of Indianapolis. Cultural Development Development, City of Indianapolis-Marion County, Initiatives: Building Participation Through Indiana. Neighborhoods and Housing Issue Cultural Tourism. June 2001. Committee Report. August 2001.

• Collaborative Economics. 1999 Central Indiana • Division of Planning, Department of Metropolitan Regional Technology Metrics: Measuring Progress Development, City of Indianapolis-Marion County, Toward Technology Goals. Palo Alto, California. Indiana. Redevelopment Issue Committee Report. 1998. August 2001.

• Crowe, Chizek and Company, LLP and McHale. • Division of Planning, Department of Metropolitan Cook and Welch P. C. Coalition on Monitoring Development, City of Indianapolis-Marion County, Public Efficiency and Tax Expenditures Project: Indiana. Regionalism Issue Committee Report. Executive Summary. August 1999. August 2001.

• Development Strategies, Inc. and HNTB. • Division of Planning, Department of Metropolitan Projections of Population and Employment to 2025. Development, City of Indianapolis-Marion County, Indianapolis, Indiana. 25 January 2001. Indiana. Transportation and Infrastructure Issue Committee Report. August 2001. • Division of Planning, Department of Metropolitan Development, City of Indianapolis. Facilities • Division of Planning and Zoning, Department and Services Needs Assessments: Compilation by of Metropolitan Development, City of Indianapolis- Township. 1998-2000. Marion County. Determinates Index System- Methodology and 1975 Results. November 1975. • Division of Planning, Department of Metroplitan Development, City of Indianapolis. Indianapolis • Geib, George W., et al. Indianapolis: Hoosiers’ Development Assets. 30 October 1999. Circle City. Colonial Heritage Press, Tulsa, Oklahoma, 1981. • Division of Planning, Department of Metropolitan Development, City of Indianapolis. The Report of • Harrison, Wyman. Pages from the Geologic Past the Growth Advisory Committee. February 2000. of Marion County. Bloomington, IN. February 1963. • Division of Planning, Department of Metropolitan Development, City of Indianapolis-Marion County, • Harrison, Wyman. A Special Report on the Indiana. Cultural, Social and Education Issue Geology of Marion County. Bloomington, IN. 1 Committee Report. August 2001. December 1963.

• Division of Planning, Department of Metropolitan • Indianapolis Chamber of Commerce. Business Development, City of Indianapolis-Marion County, Agenda: Strategies for a Successful Community Indiana. Economic Development Issue Committee 2000-2003. Indianapolis, Indiana. Report. August 2001. • Indianapolis Chamber of Commerce. Getting • Division of Planning, Department of Metropolitan Indianapolis Fit for Tomorrow. Report of the Development, City of Indianapolis-Marion County, Indianapolis Chamber of Commerce Infrastructure Indiana. Environment, Parks and Open Space Commission. Indianapolis, IN. June 1991.

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• Indianapolis Housing Task Force. A Housing • City of Aurora Planning Department. Strategy for Indianapolis. Indianapolis Housing Comprehensive Plan. Aurora, CO. 2000. Task Force. Indianapolis, IN. • City of Columbus Planning Division. Columbus • Indianapolis International Airport. Noise Comprehensive Plan. Columbus, OH. Decemeber Compatibility Plan: Neighborhood Compatibility 1993. Programs. Indianapolis, Indiana. July 1998. • City of Minneapolis Planning Department. The • Metropolitan Association of Greater Indianapolis Minneapolis Plan. Minneapolis, MN. Communities. MAGIC Final Report. October 1999. Retrieved on 26 April 2001 from http:// • City of Tuscon Planning Departmant. The www.indychamber.com. General Plan. Tuscon, AZ. 14 December 1998.

• Nunn, Samuel and Rubleske, Joseph. An Analysis • Colorado Springs City Planning. Approved of Retail Development in the Indianapolis Inner Comprehensive Plan: Review. Comprehensive City. Center of Urban Policy and the Environment. Planning Unit. Colorado Springs, CO. 2001. Indianapolis, IN. April 1999. • Louisville and Jefferson County Planning • The Polis Center. Survey of Marion County Commission. Cornerstone 2020 Comprehensive Residents and Businesses on Public Facility Needs Land Use Plan. Louisville, KY. 15 June 2000. Summary of Results. Indianapolis, Indiana. 2 July 1999. • Planning Resources, Inc. Comprehensive Plan: Town of Cumberland, Indiana. Avon, IN. 6 • Przybylski, Michael and Mark S. Rosentraub. A December 2000. Competitive Advantage Analysis of Indianapolis Industries. Indianapolis, IN. June 1997. • Seattle Strategic Planning Office. Seattle’s Comprehensive Plan. Report of Comprehensive • R. L. Banks and Associates, Inc. et. al. City and Neighborhood Planning Section. Seattle, of Indianapolis Comprehensive Rail Study. Washington. 2001. Washington D. C. 15 December 1995. • University City Plan Commission. Comprehensive • Sulgrove, B. H. History of Indianapolis and Plan Update. University City, MO. 1999. Marion County. L. H. Everts and Company, Philadelphia, Pennsylvania, Copyright 1884. Other Background Documents

• Taylor, Robert M., et al. Indiana: A New • Americans for the Arts. Cultural Districts Historical Guide. Indiana Historical Society, and Economic Development. Report for the U.S. Indianapolis, Indiana, Copyright 1989. Conference of Mayors. 2001.

• Technology Partnership Practice, Battelle • Atkinson, Robert D. and Paul D. Gottlieb. The Memorial Institute. Nurturing Central Indiana’s st Metropolitan New Economy Index. Progressive Pillar Industries for 21 Century Midwestern Pre- Policy Institute, Washington D. C. April 2001. eminence. December 2000. • Ball State University. The Economic Development Reader. Muncie, Indiana. 2000. • Terzo and Bologna, Inc. An Analysis of Six Retail Locations in the Indianapolis Inner City. • California Environmental Protection Agency, Indianapolis, IN. Air Resources Board. The Land Use- Air Quality Linkage: How Land Use and Transportation Affect Other Plans Air Quality. 1997.

• City of Anchorage. Anchorage 2020: Anchorage • Davidson, Lawrence S., et. al. Metropolitan Bowl Comprehensive Plan. Anchorage, AK. 2000. Export Performance. 1 July 1998.

• Honachefsky, William B. Ecologically Based • Congress For New Urbanism. “Greyfield Regional Municipal Land Use Planning. Lewis Publishers, Mall Study”- - PWC Global Boca Raton, FL. 2000. Strategic Real Estate Research Group. January 2001. • Indiana University Information Technology Committee. Architecture for the 21st Century: • Horseman, Karen. “Voice Your Views about Information Technology Strategic Plan. Indiana Billboards.” Indianapolis Business Journal. Feb.26- University, Bloomington, Indiana. May 1998. March 4 2001.

• Lucy, William H. and David L. Phillips. • Indiana Economic Development Council, Inc. Confronting Suburban Decline: Strategic “Break Away Growth - Strategic Plan (excerpts)”. Planning for Metropolitan Renewal. Island Press. Retrieved on 26 April 2001 from www.iedc.org. Washington, D.C. 2000. • Maryland Department of Planning. “Smart • Michiana Area Council of Governments. Smart Growth in Maryland.” Annapolis, MD. 2001. Growth Initiatives Handbook: A Guide for the Efficient Management of Growth. South Bend, • Michael Gallis & Associates. “Metropolitan Indiana. 2000. Growth Alliance - Greater Cincinnati (Excerpts from the Greater Cincinnati Metro Region • Moore, Jesse. Economic Development Vision 2010. Resourcebook)”. Retrieved on 26 April 2001 from Indiana Chamber of Commerce, Indianapolis, http://www.gccc.com. Indiana. • The National Center for Public Policy and Higher • Pennsylvania Department of Community and Education. “Measuring Up 2000 State Profiles: Economic Development. Reducing Barriers to Indiana.” Measuring Up 2000: The State-by-State Affordable Housing. Governor’s Center for Local Report Card for Higher Education. 2000. Services. Harrisburg, PA. 1999. • Oldenburg, Ray. “Our Vanishing ‘Third Places’.” • Trustees of Indiana University. Foundations for Planning Commission Journal. Winter 1996- Innovation: Information Technology at Indiana 1997. University. Indiana University, Bloomington, Indiana. 2000. • Pennsylvania Department of Community and Economic Development. “Reducing Land Use • Western Australian Planning Commission. Barriers to Affordable Housing.” Governor’s Center Liveable Neighbourhoods: A Western Australian for Local Government Services. Harrisburg, PA. Government Sustainable Cities Initiative. The 1999. Government of Western Australia. June 2000. • Technical Training Services Inc. “Tech Notes”. Background Articles Retrieved on 26 April 2001 from web page of Indianapolis Private Industry Council • Arendt, Randall. “Open Space Zoning: What It Is And Why It Works”. Retrieved on 26 April • Unknown. “An Eyesore No More - Indianapolis 2001 from http://www.plannersweb.com/articles/ Brownfield Site Becomes Neighborhood” are015.htm. • Anchor. “Indiana Chamber of Commerce • Barrett, Katherine and Richard Green. Magazine.” “Grading the States: A Management Report Card”, Governing. February 2001. • Unknown. “Goldfields from Greyfields - From Failing Shopping Centers to Great Neighborhoods.” • Chadwick, Dave. “Fiscal Disparities Act - Twin Congress for New Urbanism - PWC Global Cities Region – Minnesota”. Minnesota Journal. Strategic Real Estate Research Group. January February 2001. 2001

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• Wisconsin Department of Natural Resources. “Groundwater-Protecting Wisconsin’s Buried Treasure, PUBL-DG-055-99 Wisconsin Natural Resources”. Civil Engineering News. March 2001

• Zinsmeister, Karl. “Are Today’s Suburbs Really Family Friendly?” The American Enterprise. November/December 1996.

Commerce Appendix G: Credits Joseph Slash, IPALCO, retired David Smith, City-County Council Robert Snyder, American Institute of Architects, Division of Planning Indianapolis Chapter Maury Plambeck, Administrator Sue Solmos, Near Eastside Community Organization Keith Holdsworth, Principal Planner Roger Stevens, Builders Association of Greater Indianapolis J. Dennis Slaughter, Senior Planner Steve Sullivan, Metropolitan Indianapolis Board of Realtors William Peeples, Senior Planner Jeff Swenson, Warren Township Metropolitan School Kevin Gross, Senior Planner District Russell McClure, Senior Planner William Taft, Southeast Neighborhood Development Robert Uhlenhake, Senior Planner Ed Treacy, Metropolitan Development Commission Gina Bush Hayes, Planner Douglas Trolson, Greater Allisonville Community Council Alice Gatewood, Planner Nannett Tunget, Mayor, City of Southport Michael Rogers, Intern J. Warner Wiley, Mayor, City of Beech Grove Barry Wood, Washington Township Assessor Steering Committee Harold Anderson, Metropolitan Development Commission Cultural, Social and Education Issue Committee Service Council Francine Kelly, Chair Edward Bowes, Pike Township Metropolitan School District Keira Amstutz Thomas Bruns, Indianapolis Water Company Michael Beck Cathy Burton, Marion County Alliance of Neighborhood Janet Boston Associations Dr. Edward Bowes Joe Calderon, Land Use Committee of the Indianapolis Bar Elizabeth L. Brown Association Richard Cripe Moira Carlstedt, Indianapolis Neighborhood Housing Mark Dewart Partnership Rick France Elmo Carver, Franklin Township Community School Fred Green District Chief Randy Gulley Alicia Craig, National Audubon Society, Amos W. Butler Kay Harmless Chapter Sherri Horn Mark Dewart, Sierra Club, Heartlands Group Glendal Jones Carl Drummer, Center Township Trustee Kristen LaEace Ed Frazier, Town Board President, Town of Speedway Kathy Mance O’Brian Andrea Gilland, Historic Urban Neighborhoods of Nancy Meade Indianapolis Lori Olivier Guy Hayes, United Way/Community Dixie Ray Abbe Hohmann, Plat Committee Melanie Roberts Karen Celestino Horseman, City-County Council Mary Lousie Scheid Lamont Hulse, Indianapolis Neighborhood Resource Center Chief Wayne Smith Lacy Johnson, Indianapolis Airport Authority Debbie Tuvell-Thies Sam Jones, Urban League of Indianapolis Priscilla Williams Francine Kelly, Indianapolis Children’s Museum Robbie Williams Charles Kindermann, Indianapolis Senior Citizens Center Kelly Wood Michael Lawson, Indianapolis Regional Economic Mark Zelonis Development Partnership Lee Lewellen, Central Indiana Regional Community League Economic Development Issue Committee Marcia Matthieu, Marion County Soil & Water Conservation Abbe Hohmann, Chair District David J. Baird Jeffrey R. Miller, Earth Day Indiana Ellen Beaton Jesse Moore, Indianapolis Black Chamber of Commerce Tom Bruns John Ottensmann, IUPUI-School of Public and Joe Calderon Environmental Affairs Jeb Conrad Cherrish Pryor, Indianapolis Chamber of Commerce Julia Dunkman Stephen Rink, Decatur Township Trustee Bob Frye Thomas D. Schneider, Mayor, City of Lawrence Mike Graham Ivan Schumann, Indianapolis Hispanic Chamber of Dorothy Jones

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Anne Kilponen Steve Hormann Eileen Laughlin Patrick Huehls Norman Pace John Maren Stephanie Quick Ed Mitro Alan Retherford John Oakley Kathy Rietmann Lori Olivier Kevin Strunk John Ottensman Michael Tockey Norman Pace David Retherford Environment, Parks and Open Space Issue Committee Jean Ritsema Jeffrey R. Miller, Chair Jeanette Robertson Merri Anderson Margaret Schattner Lou Ann Baker Bob Sewall William Beranek, Jr. Bruce Sklare Jennifer Bowman J. P. Stancil, III Mark Boyce Roger Stephens Linda Broadfoot John Sweezy, Sr. Donald Colvin Gene Valanzano Todd Cook Nathan Wetzel Alicia Craig Phyllis Zimmerman Diane Foglesong David Forsell Neighborhoods and Housing Issue Committee Jeff Gearhart Lamont Hulse, Co-Chair Vince Griffin Sue Solmos Co-Chair Jay Ham Pat Andrews Kyle Hendrix Kristen Blakey Ray Irvin David M. Bowen Kevin Kirk Janis Bradley John Kupke Cynthia Cunningham Jayne Langan Jennifer Fults Greg Lindsey Beverly Mukes-Gaither Jeffrey Marble Kay Gordon Rick Martin Eleanor Granger Marcia Matthieu Bryan Kennie Russell McClure Willie Marquez Sheila McKinley Kerry May Sandra Miles Don Melloy Don Miller Marc Moss Scott Miller Norman Pace Neil Myers Anne-Marie Predovich Carl Pebworth Tom Ransburg Donna Price Curtis Rector Robert Snyder Jeanette Robertson Cindy Spoljaric Sandra Sandifer Maria Steiner Anne Sipe Roger Stephens Robert J. Smith R. M. Van Frank Betty-Smith Beecher Mariam Alam Stacy Land Use Standards and Procedures Issue Committee Ellen Stancil Harold Anderson Mark Stokes Pat Andrews Mary L. Walker Ken Bartlett Robert Wilch Tag Birge David Woodrupp John Braun Wendy Young Todd Dorcas Michael Gasser George Haerle

Redevelopment Issue Committee Chuck Ricks William Taft, Chair Mike Rogers Monica Acoff David Smoll Margaret Lawrence Banning Mildred Wilkins Mike Cervay Lou Zickler Lawrence Coffey Todd Cook Transportation and Infrastructure Issue Committee Tom Crouch Doug Trolson, Chair Pat Dubach Donald Able Joe Giacoletti Merri Anderson Alan Goldsticker Tom Beck Beth Grigsby Stephanie Belch Neva Hagedorn Mary Etta Bersig Kyle Hendrix Bob Bork Bill Ihrer Cornell Burris David Kingen Steve Cunningham Daniel Kloc Lara Daly Hal Kunz Steve Fehribach Steve Logan Kevin Fuhr Thomas Major Sally Getz Karen McClurg Ron Greiwe Catherine Meeker Elizabeth Johnson Norman Pace Steve Judson Robert Poffenberger Thomas Keesling Randy Scheidt Jason Larrison Sherry Siewert Kate McVey Chris Streibeck Lori Miser Sylvia Trotter Norman Pace Betty Tuller Ed Paynter Robert Veneck Roland M. Ross Jean Sallwasser Regionalism Issue Committee Paul Schierenberg Joseph Slash, Chair Linda Shaw Nancy Ainger John Sweezy, Jr. Trent Bennett Pat Williams Amy Canute Mike Dearing Ron Deer Mark Demerly Noel Duerden Steve Engelking Joanie Fitzwater Rebecca Fletcher Eleanor Granger Kelli Hahn Jim Klausmeier Tina Jones Brad King Robert Kleinops Don Knapp Lee Lewellen Mark Mills Gary Mithoefer Norman Pace Anna Pea David Post Aaron Reynolds

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