36 City of Gary COMPREHENSIVE PLAN Census, conversations withcommunity leaders,andCity staff. U.S. and City the fromstatistics including sources, of variety a fromcollected transportationconditionsGary. in weredocument informationthe and Datain of information anddata aboutthesocial,physical, natural, economic, and range a includes It time. overprogress monitoring for indicators and city the It provides anup-to-date snapshotofkey issues andopportunitiesfacing adaptable. and flexible are that regulationsfuture providing contextfor while This chapter isintended to documentbaselineconditions intheCityofGary where we are now? chapter 5 chapter

37 5. WHERE WE ARE NOW This chapter is divided into five sections:

1. Built Environment. This section provides an overview of the existing land use and development across the city, including an analysis of general land use patterns, parks, schools, and community facilities, and property conditions, including vacancy and blight. 2. Economy. This section summarizes existing policies, practices, and trends related to market and economic conditions in the city. It provides an assessment of key industry/job sectors, City finances, and growth opportunities. 3. Nature. This chapter provides an inventory of the existing natural areas and environmental conditions in the city. 4. Transportation. This section provides a summary of the existing circulation network and transportation facilities in the city, such as roadways, freight/goods movement, transit, and bicycle/pedestrian facilities. 5. Social Context. This section provides an overview of the existing demographic, socio-economic, and health characteristics of the city. It uses U.S. Census data, City and County data, and other sources to provide a big picture analysis of the current social context within the city.

38 City of Gary Comprehensive Plan 39 5. WHERE WE ARE NOW 40 City of Gary Comprehensive Plan revitalize neighborhoodsandturnpublicvacant landinto assets for redevelopment andeconomic growth. the existing landusepattern, parks,schools,andothercommunity facilities, andproperty conditions, aswell asfuture direction to environmentcity.built the the in and currentstateland existingthe provides of depicts It conditions. overviewThissection an of years, hasextensively theCityofGary inventoried vacant buildingsandproperty information to better understand andbaseline neighborhoods too close to heavy industry and heavy rail, and industrial lands directly abutting sensitive natural habitats. In recent land use decisions in recent decades have resulted in impractical and conflicting land use patterns across the city, with residential poor developmentand early Gary’s in planning of lack addition, In services. constrainedresourcesand and blight by challenged areToday,greatest neighborhoods challenges. manyits and also vacant greatestand is assets land city’s the percentoverof 40 Gary’s of one is vacantland, particularly Land, population. the fractionof a size,with approximatelyfootprint,in squaremiles 50 The City’s population decline has slowed in recent years and appears to be stabilizing. What has been left in its wake is a large city Built Environment

41 5. WHERE WE ARE NOW at-a-glance

DENSITY

Gary is 25% the size of by area, but only 3% by population

AVERAGE HOME PRICE NUMBER OF HOME SALES OVER TIME Gary - Number of Sales 120 77,000 100 average home price 80

60

40

20

0 2011 2012 2013 2014 2015 2016 2017 2018

42 City of Gary Comprehensive Plan - CityofGary, Counts Gary Survey Sources: US Census American Community Survey (ACS) 2012-2016 5-year estimates, USCensus 2000and2010, Home SalesandDemolitions VACANCY, BLIGHT,ANDTAXDELINQUENCY 2 in5 1 in5 $ 1,317 $100M Gary homesareGary homesareGary demolitions since 2015 buildings inGary demolish allvacant estimated cost to blighted vacant 37.5% 1 in5 $ 3.4% homes ontaxsaleevery year in 2017/18 of parcels were tax delinquent 42% of landisvacant from 2010/11

43 5. WHERE WE ARE NOW EXISTING LAND USE This section provides an overview of existing land use patterns LIGHT MANUFACTURING AND in the city, as illustrated in Figure 5-1. Existing Land Use. Additional details on existing land use and conditions can be HEAVY INDUSTRIAL found in the neighborhoods section of Chapter 6. Planning Frameworks. Over a third of Gary is industrial land, a product of U.S. Steel’s influence and legacy. Heavy industry exists north of the Toll Road (I-90) along the lakefront while lighter RESIDENTIAL industry, warehousing, and trucking uses are positioned around the I-65 interchange, Melton Road (U.S. 20), and along Cline The vast majority of the city is composed of single-family Avenue. In many areas, industrial land directly abuts residential residential neighborhoods. Most of Gary’s housing is single- neighborhoods, creating negative impacts of traffic, noise, and th family homes built in the early to mid-20 century, accompanied pollution. by a mixture of multi-family duplexes and larger apartment buildings. The Gary Housing Authority manages 1,425 housing units (and 1,763 housing vouchers) and is currently modernizing PARKS AND OPEN SPACE many of its larger residential properties in less centrally- located areas of town including its Colonial I and II properties Gary is rich with natural assets. Unique and biodiverse in and the Dorie Miller housing complex in . habitats, dune and swale ecosystems, and abundant wetlands, Very little contemporary housing exists in Gary and new home parks, trails, and miles of lakefront provide an opportunity to construction over the past 20 years is almost exclusively located increase and enhance open space citywide. Rare and valuable in the Small Farms and Miller neighborhoods. conservation areas are located along the , the Indiana Dunes National Park, and in Buffington Harbor (discussed further in the Nature context section). Yet many BUSINESS AND COMMERCIAL of these sensitive habitats sit directly adjacent to industrial land, threatening the ecological health of these ecosystems. Commercial activity, stagnant for decades, has left Gary’s most In addition to actively managed parks and conservation land, prominent corridors blighted. Retail, dining, and commerce is the city contains numerous unmanaged natural open spaces, relegated to several small nodes, a few strip malls, and one- to particularly in the floodplain of the Little Calumet River. two-block stretches along Broadway, Grant Street, Lake Street, 5th Avenue, 25th Avenue, and Ridge Road. Occupied commercial buildings are largely overwhelmed by neighboring vacant and abandoned properties. Blight even persists in the most densely occupied commercial areas along Grant Street, Broadway, and Lake Street.

44 City of Gary Comprehensive Plan land isshown inFigure 5-2. future.Vacantour for provideweplan can greatvalueas Gary and creativity afforded by repurposing one-in-five properties in zoning codes, and investment decisions are made. The flexibility vacancy shouldbelargely considered as new land use maps, (and therefore notillustrated a“use” onFigure 5-1), theprevalence of as classified traditionally not Though Gary. in land of land, blighted lots,andabandonedbuildingscomprise alarge share vacant patterns, development historic defined Despite LAND BLIGHTED ANDUNDERUTILIZED scattered throughout thecity’s residential neighborhoods. such uses, as schools,community centers, libraries, andchurches are institutional Other Gary. in uses land institutional working hourpopulations andcontain thelargest clusters of substantial maintain centraltwonodes These campus. College CareerGary Center andrepurposed former Ivy Tech the Community to eastward Tech), Ivy and Northwest University Indiana centers exist along35 contains Center, and Downtownancillary office space. In addition, campus major educational Metro Benjamin Adam Courthouse, municipal County Lake the Hall, City Gary’s of City The INSTITUTIONAL LAND th Avenue from Broadway (home to Lake Streetneighborhood retail Vacant lotsandabandonedbuildings

45 5. WHERE WE ARE NOW FIGURE 5-1. EXISTING LAND USE

Note: Data was not available to differentiate and show institutional uses on this map. * Best available data at time of publication Source: City of Gary Redevelopment Commission 46 City of Gary Comprehensive Plan Source*: GaryCounts Survey(2015) FIGURE 5-2.VACANT ANDUNOCCUPIED LAND * Bestavailable dataattimeofpublication

47 5. WHERE WE ARE NOW PARKS, SCHOOLS, COMMUNITY FACILITIES PARKS addition to maintenance issues, residents have voiced concerns about park safety and access. The Public Parks Department is currently evaluating the utility of each of its parks, resident Gary’s vast park system was originally designed for 200,000 needs, and updating the master plan. Parks serve Gary not only residents, all of whom would benefit from being within for recreation and open space, but also as potential growth and a short walk to their park. The 1964 Comprehensive Plan stabilization opportunities. The updated Parks and Recreation established a minimum standard of 10 acres per 1,000 Master Plan will address the potential to repurpose, develop, residents to accommodate the current and future residents – and consolidate park land citywide, while carefully balancing approximately 1,800 acres. Gary’s 57 resulting parks present new park renovations with continued maintenance of existing both an opportunity for redevelopment and a challenge for parks. maintenance and programming. Thirty of these parks are actively managed by the Gary Department of Public Parks, which performs regular maintenance and upgrades to park TABLE 5-1. PARK CLASSIFICATIONS facilities and equipment. Of the City’s active parks, eight are TIER 1 (Jewel and Regional Parks) DISTRICT designated as Tier 1 parks, which enjoy greater use and receive more resources, based on traffic, regional significance, and Glen Ryan Park 1st District geographic distribution across each of Gary’s Council Districts nd (see Table 5-1 below). Six additional Tier 2 parks primarily serve Parks 2 District their adjacent communities and tend to be less of an attraction Parks 3rd District outside of the neighborhoods they serve. In addition, there are Reed Park (formerly Washington Park) 4th District 27 inactive park sites throughout Gary – formerly active parks th that are no longer being maintained by the City. Roosevelt Park 5 District Howe Park 6th District Recent park renovations have been met with mixed reception. Regional Marquette Park’s 2011-13 renovation has resulted in a significant increase in usage, and additional investments have been made Gleason Golf Course Regional by community and advocacy groups for programming and TIER 2 (Community and Neighborhood Parks) accessibility improvements. Reed Park renovations in 2016 Jackson Park included the creation of a splash pad, improvements to the park Hatcher Park pavilion, and installation of native plantings. However, many residents voiced concerns regarding continued maintenance of Buffington Park park improvements, consistent with other parks in the system. Borman Square Park Since adoption in 2009, the Gary Parks and Recreation Seberger Park Master Plan has been used largely to manage maintenance Ironwood Park and effectively resource an overburdened parks district. In

48 City of Gary Comprehensive Plan LaBroi Park in theAetnaneighborhood

49 5. WHERE WE ARE NOW FIGURE 5-3. CITY OF GARY PARKS

Source*: City of Gary Redevelopment Commission and Public Parks Department * Best available data at time of publication

50 City of Gary Comprehensive Plan once served. character ofthecommunities inwhichthey are located and opportunities, thoughthey are limited by thetypicallyresidential same the At time,sizethe vacantof presentholdings GCSC redevelopment schools. around amenities and neighborhoods over evolve and sites time, it alters the age-old planning tenet of building residential school reduce to continues GCSC As other pedestrian-oriented landusesare present. adequate lack added infrastructure needinsomeareas ofthecitywhere few areas These buildings. pedestrian infrastructure, makingsidewalks andcrosswalks an school as intended Dunes on Melton Road) or in repurposed facilities not originally the Avenue;of 5th School CharterAcademyon Bowman Thea (e.g.corridors industrial light incompatible in sitedare schools enough to buildoninresidential areas, several new charter large lots availabilityof limited toGary. Due in schools charter children and hasalso led to the construction of numerous hindered residential growth for families withschool-aged The unfavorable perception ofGary’s school system has District, School Ridge Lake adjacent to the Gary’s neighborhood, byoutside city limits. and city) the in sites (22 sites. The remainder 9 ofGary’s students are served by charter schools at Gary in educated students 13,000 the of half than less serves currently (GCSC) Corporation number School Community a to Due 5-4). Figure inactiveof factors (see – poor performance, population loss – the Gary city 29 the and in sites sites schools school active 31 are there Currently city. the in facilities school of expansion significant a necessitating enrollment would student increase from 37,000 students total in 1960 to 58,000 in 1985 the projected Plan Comprehensive was created to serve a population nearly twice its size. The inventory1964 school Gary’s institutions, built other and parks Like SCHOOLS 1

it shares withIvy Tech Community College, whichrecently the openingofanew artsandsciences buildingin 2017, which 36- The learning. higher acre campus has recently of expanded across Broadway with institution largest Gary’s is and campus by enrollment, islocated onBroadway at 35 commuter largest system’s the Northwest, University Indiana 1 Roosevelt HighSchool,25th Avenue population. existing educational assets the and leverage on the build significant daytime to opportunities redevelopment provide School Elementary Franklin Benjamin former closed and site Gardens to the east at Georgia Street. The recently vacated GHA Colonial Northwest to the west at Broadway and the Gary Career Center 35 west. the to along 35 The university campushasopportunitiesfor furthergrowth vacated itsproperty on35

K-12 SchoolEnrollment -IndianaDepartment ofEducation th vne Boda, n ajcn t Gesn Park Gleason to adjacent and Broadway, Avenue, th Avenue isbookended by IndianaUniversity th Avenue severaleast. the to blocks th Avenue

51 5. WHERE WE ARE NOW FIGURE 5-4. SCHOOLS

Source*: City of Gary Redevelopment Commission, GCSC * Best available data at time of publication

52 City of Gary Comprehensive Plan density. mismatch between location ofcore services andpopulation highest the of concentrations some ofvacancy andblighted property, creating a experience also 5-5). areas Figure these (see However, routes transit along and locations roads their trafficked to heavily due Park Glen and Park, University ,Downtown, as such neighborhoods central Gary’s in community gardens, andcommunity centers are concentrated Community anchorfacilities like schools,churches, libraries, COMMUNITY FACILITIES Holy AngelsCathedralonTylerStreet

53 5. WHERE WE ARE NOW FIGURE 5-5. COMMUNITY FACILITIES AND ASSETS

Source*: City of Gary Redevelopment Commission, Delta Institute * Best available data at time of publication

54 City of Gary Comprehensive Plan FIGURE 5-6.PROPERTY CONDITIONS for 5-7 results and ofthesurvey. 5-6 Figures See citywide. conditions property surveyed School UniversityChicago’sHarris the of with conductedpartnership study2015 in A patterns ofcommerce andhigher-densityresidential. that proximity, exploring alternative landusesbeyond thetraditional landuse creating anopportunityto redevelop Gary’s central core to take advantage of have thebest access to amenities,transit, andtransportation infrastructure, also areasvacancy highest Thecentrally-located neighborhoods. most Gary’s the Broadway corridor has the highest rates ofblight and vacancy, destabilizing of concentrations along corecity’s highest The neighborhoods. Tolleston,Miller Mann, and Farms, Small The Gary is Ambridge delinquent. in Side,West the in located are properties well-maintained tax occupied property all severely of fifth and a abandoned nearly loss, population of decades After PROPERTY CONDITIONS VACANCY, ANDBLIGHT PROPERTY CONDITIONS, 6,500+ 2 in5 1 in5 1 in5 $ $ $100M homes ontaxsaleevery year homesareGary homesareGary buildings abandoned buildings inGary demolish allvacant estimated cost to blighted vacant surveying eachparcel to inGary improve of Chicago Harris School, spent two years The City, inpartnershipwiththeUniversity STUDY UNIVERSITY OFCHICAGO www.garycounts.org. to continues City update thedata, whichcanbefound at the and 2014, Fall in comprehensive survey was completed The miles. square 50+ Gary’s in property their volunteered time to help collect information on each people repair. 200 to damaged Nearly too become they planning andto catch properties before

55 5. WHERE WE ARE NOW FIGURE 5-7. PROPERTY CONDITIONS

Source*: Gary Counts Survey (2015) * Best available data at time of publication

56 City of Gary Comprehensive Plan an ae agtd o bih eiiain n infrastructure and elimination investments to support continued improvement andgrowth. blight for targeted Horace are and Mann, Ambridge, Brunswick, of parts like transition, in or stabilizing are that neighborhoods residential Some rates. Tax stabilizing and experiencing anincrease inhomesalesandtaxcollection gradually 5-8. been have Figure neighborhoods Some (see Rate). decline Taxin Delinquency Change of 5-9. Figure and Rate Delinquency years after stabilization citywide, tax collection perparcel, whichindicates relative population decreased consistently has many areas ofthecityhave seenrelatively littlechangein collection tax While time asblocksbecome empty. in many suchneighborhoods to repurpose neighborhoodsover safety,and health overalland existslife.Opportunity of quality out presents aseriouschallengeto community stabilization, public move neighbors As or pass away, vacancy quicklybecomes abandonment;this block-to-block. from consistently resulted in onlya few occupied homes onentire blocks, corridors. Attrition inmany ofGary’s residential neighborhoods has key along and neighborhoods within interspersed and small are parcels vacant of majority the community, the Though there are many areas where vacant landdominates schools andlibraries. from storefronts andrestaurants to institutional buildings like As vacant. empty, contributing also to theabandonmentofotherproperties are units housing all the city’s population has declined,housingunitshave gone of third a nearly and Approximately halfofGary’s entire footprint isvacant land, VACANT LAND Vacant lots

57 5. WHERE WE ARE NOW FIGURE 5-8. TAX DELINQUENCY RATE (2016)

Source*: Lake County Treasurer * Best available data at time of publication

58 City of Gary Comprehensive Plan Source*: LakeCounty Treasurer FIGURE 5-9. CHANGEINTAX DELINQUENCY RATE BETWEEN2014 AND2016 * Bestavailable dataattimeofpublication

59 5. WHERE WE ARE NOW BLIGHT ELIMINATION assembly difficult. More than 90 percent of publicly-owned parcels – defined as property held by the City of Gary, Gary Redevelopment Commission, Parks Department, or County The City of Gary runs a substantial demolition and deconstruction – are vacant single-family lots. Sites large enough to effect program to remove buildings in poor or dangerous condition significant development will require the aggregation of dozens throughout the city. The 2015 parcel survey estimated more than 6,500 vacant buildings in need of demolition. Since 2012, of individual parcels. the City has demolished more than 1,300 dilapidated structures. Years of disinvestment has also led to thousands of consistently FIGURE 5-10. CHALLENGE OF SITE ASSEMBLY tax delinquent properties, with unpaid taxes dating back at least three years. Over 11,000 properties, representing more than 1-in-5 properties in Gary, end up on the County Treasurer’s tax sale auction each year, and 94 percent never sell.2 These abandoned properties lead to City services for board-up, security, and often demolition, with no return or cost recovery, representing a sunk cost to Gary taxpayers.

Blight elimination has occurred to target abandoned structures in otherwise stabilizing areas and in large concentrations to remove significant public safety concerns. In the past ten years, the majority of blight elimination has consisted largely of demolitions. The Green Infrastructure Plan (see Appendix A), provides more direction on additional blight elimination strategies as well as where demolition can achieve a greater return for the purpose of both beautification and stormwater management. SITE ASSEMBLY

Perhaps the greatest obstacle to scalable redevelopment is availability of contiguous vacant or public land. While as much as a fifth of all parcels in Gary are vacant, ownership varies from property to property, creating few sites large enough to effect redevelopment. An average Gary city block is comprised of 48 separate parcels, each less than a tenth of an acre in size. With disinvestment and population loss, this makes land 2 Source: https://www.communityprogress.net/filebin/150928_TASP_Gary_ Sheraton Hotel demolition in (2013) Report__FINAL.pdf.

60 City of Gary Comprehensive Plan Source*: Cityof GaryRedevelopmentCommission FIGURE 5-11. CITYDEMOLITIONPROJECTS 2012-2019 * Bestavailable dataattimeofpublication

61 5. WHERE WE ARE NOW HISTORIC PRESERVATION IN GARY

The City of Gary offers a wealth of historic and culturally Bank Building. South along the Broadway corridor is a district significant properties, especially near Downtown. There are that is one of the most culturally-significant areas in the Gary. currently three designated historic districts and nine individual Known as Historic Midtown or the Central District, this area properties that are listed on the National Register of Historic was one of the most notable African-American communities Places, the Nation’s official list of historically significant in Gary and was well known as a haven for many talented Jazz structures. and Blues musicians of the 20th century. Historic Midtown is generally located south of 15th Avenue, north of Gleason Park, CITY CENTER HISTORIC DISTRICT east of Harrison Boulevard, and west of Carolina Street.

The City Center Historic District, located in Gary’s Downtown, is ADDITIONAL HISTORIC one of two historic districts in Gary listed on the National Register of Historic Places. The existing buildings in the Downtown City DISTRICTS AND OTHER Center are mostly commercial, early 20th century architecture. SCATTERED SITES A majority of the City Center Historic District is located along Broadway between 4th Avenue and 9th Avenue. The following Gary has several notable residential areas, primarily west of are a few examples of historically-important buildings: Downtown. These areas include a range of residential building • Lake County Courthouse types and cover the following districts: • Gary City Hall • West 5th Avenue Apartments Historic District. W. 5th • Gary State Bank Avenue between Taft and Fillmore Streets, majority built 1920-1930. • Hotel Gary • Horace Mann Historic District. Between W. 5th and W. 8th • The Palace Theater Avenues and Roosevelt and Cleveland Streets, majority • City Methodist Church built 1920-1940. • Eskilson Historic District. Between W. 5th and W. 3rd SOUTH BROADWAY AND Avenues and Cleveland and Grant Streets, majority built 1927-1930. HISTORIC MIDTOWN • Lincoln Street Historic District. Between W. 6th and W. 8th Avenues and Hayes and Fillmore Streets, majority built A section of Broadway south of the City Center District includes circa 1920. smaller scale commercial buildings. The buildings in this area are in generally good condition. One building that stands out the most on South Broadway is the former American State

62 City of Gary Comprehensive Plan significant historical legacy. History Committee in 2017, which focuses on recognizing Gary’s Finally, theCityCouncil reactivated itsArts,Culture, and across installations art and Church, Downtown. Methodist City the at marker historic an of dedication the includes This properties. with complete summer, the docents andhistorical information onGary’s most historic over Tours Preservation Gary annual conducted has Department Redevelopment City’s The arts, culture, andhistoric preservation. coalesce toprogramming continues Broadwayand on Station to activating vacant spaces, hasrevitalized theformer Union municipal the last several years. The Decay Devils, a non-profit dedicated new and activism resources, historic preservation has seen a resurgence in Gary neighborhood in to largely Due EFFORTS CONTINUING PRESERVATION and theRecreation Pavilion. historically-important Pavilion Beach Bathing Park Marquette The W.Maher: George two has structures Park designed by the well-known Prairie School architect, Marquette buildings. The Miller and Marquette Park area also possesses some notable Branch Library, andRalphWaldo EmersonSchool. includes Side East Building, Block This Sax Station, Union Gary the as conditions.such varying in educational, residential, commercial, andreligious facilities, buildings historic of range wide a is District Historic Center City the near Located Dalton Arms Apartmentson5thAvenue

63 5. WHERE WE ARE NOW KEY TAKEAWAYS

• The City’s infrastructure, street grid, and facilities were built for a growing population of nearly 200,000 residents, to largely accommodate single-family residential neighborhoods and several strong commercial corridors. These systems are too large for the current population and too costly to maintain. • Vacant land and buildings are among Gary’s most undervalued assets. • Many inactive schools, parks, and other community facilities are scattered throughout the city, creating unsafe conditions and blight that destabilizes neighborhoods. The unpredictability of GCSC makes planning around school buildings difficult. • Public facilities and parks need to be consolidated to better reflect population trends and budgetary realities. • Key neighborhood anchors provide an opportunity to prioritize neighborhood stabilization and investment. • Many residents are in areas of the city that are sparsely populated and unlikely to return to their previous residential character. • The central core of the city has the highest vacancy and highest concentration of blight, yet these are the areas with the best access to public services, community amenities, and transportation assets. • Due to attrition and disinvestment, major commercial corridors are left with large stretches of blight and abandonment with only a scattering of active uses. • Redevelopment of vacant properties is challenged by a lack of market demand and costly, resource-intensive parcel assembly. • Opportunity exists to use vacant public land as a tool for neighborhood revitalization, through targeted investment and repurposing of land for new uses. • Gary’s existing green network serves multiple benefits. Expansion to include largely deserted adjacent residential neighborhoods, including parks, can advantage flood protection, habitat conservation, passive recreation, and beautification in areas that are costly to maintain and service (and are often left with neither maintenance nor services as a result).

64 City of Gary Comprehensive Plan KEY PRIORITIES the areas ofgreatest needwiththeareas ofgreatest potential. Decisions too. will environment built its evolve,contextshould be made to embracesocial these changes and adapt with Gary’sand dynamism. Investmentseconomy and land use decisions need toGary’s balance As again. fully-occupied be to like not are ever again return to the five miles of storefronts and restaurants it was infocused thealong 1960s; manytransit formerlystops, denseat residentialexisting neighborhoods activity centers, and in areas that are already Gary relativelyis evolving. stable. A It rational is frameworkunlikely for that embracing BroadwayGary’s change is will desperately needed. Investment and development should be GARY’S BUILT ENVIRONMENT: WHEREAREWEHEADED? 4. 3. 2. 1. by the City administration. The revised redevelopment code should reflect this as a priority and honor the work put in by in put neighborhood-level activists andcitizens. work the honor and priority a as this reflect should code redevelopmentrevised The administration. City the by and Regulations it. manage permitting should be loose and enabling, while not irresponsible, and information should be activelysimply shared and promoted not growth encourage to enacted be will code redevelopment Gary’s regulations, and codes prior Unlike encouraged. also but allowed be only not should agriculture urban and forests, urban and areas natural expanded spaces, public Arts, land. vacant reclaim to efforts community-led in encouraged be should Creativity them! Let neighborhoods. our Downtownin energy and of reinvestingaretheylot and a vitality city’s entrepreneurs our centralareto Enable Creativity at theNeighborhoodLevel. investment. Utilizing G-STADS, investment needs to be directed to those areas that will blight. experience further preventrestoredtobe populatedneed Sparsely neighborhoods a toforests continued need and wetlands stableneighborhoods and while return demand on that and investment.supply control to space open and trees by replaced be should blocks abandoned time, same the At anchors. community to adjacent and centers, activity in transit, aroundcentered areas be should development Certain zoning. thoughtful through managed be can Blight storefrontsempty of residents.sea twoa or amid one buildings than toRather corridors, off-limits building. major be on simply should its of needs the meet adequately to big too Embrace Gary’s Evolution. reality andincludestheprioritiesofourcitizens. likeoptions collectivetinyand homes presentedmap,servereflectsas thatTheuse will guide housing. land Plan, a this as in more and variancegreater provides that housing new to extend also should zoning in Flexibility redevelopmentstandards. Currently underway, thezoning ordinance revision needsto becompleted andappliedto allow for modernadministration of Establish Flexibility inZoning. GIS department’s investment planning decisionsbasedonmarket conditions andnottradition. the with integrated and populated, capabilities going forward. maintained, Market data, existing amenities, and community priorities should continuallybe applied to make land use and be to needs G-STADS planning. the Sanitary Gary District’s GIS department. This system is invaluable in enabling efficient use of City services and thoughtful Utilize Data-driven LandManagement. oeie rfre t a “mr dcie o “ih-iig” ays hscl otrn i simply is footprint physical Gary’s “right-sizing,” or decline” “smart as to referred Sometimes This Comprehensive Plan provides a road map for a total overhaul of land use regulation in Gary. The Gary Space Time Analytics Data System (G-STADS) is fully built and housed at housed and built System(G-STADS)fully Data is Analytics Time Space Gary The Gary’s artists, gardeners, preservationists, activists, chefs,musicians, and

65 5. WHERE WE ARE NOW KEY INDICATORS:

As Gary continues to evolve, information and data can serve as a baseline to measure progress towards meeting the long-term imperatives set forth in this Plan. The At-a-Glance sections of this chapter provide a snapshot in time of the physical, economic, environmental, transportation, and social conditions of the city. The following is a list of key indicators that will be used going forward to understand trends, evaluate progress, and guide future decision-making as it relates to Gary’s built environment.

• Population. As the most important long-term indicator, population measures our condition as a city and allows us to effectively plan for and provide services to our neighborhoods. • Demolitions (per the City’s Redevelopment Department). Demolitions remains a key indicator in quantifying blight removal, to allow for redevelopment and neighborhood stabilization. Demolitions also illustrate progress in evolving Gary’s physical footprint. • Average home price (per County Assessor data). Though slow in changing, average home price is an indicator of market conditions. • Tax Delinquency Rate. The tax delinquency rate tracks population and market condition change.

66 City of Gary Comprehensive Plan 67 5. WHERE WE ARE NOW 68 City of Gary Comprehensive Plan 3 To spureconomic growth andredevelopment, willneedto Gary leverage itsthree primaryassets: growth.economicfor engine quickly,reinvigorate demographican challenges can aroundits as sectorit industrialturn to but its Continued population loss is a drain on the tax base, the labor force, and the businesses that serve the population. Gary is not likely per year. Job losses have occurred in industries that serve localresidents, aswell asthosethat serve external markets. averagejobs an 630 lost of Gary 2015, to 2010From 2015. to 2011from bylosses out werewiped gains those but 2009,2007to 2005 and 2015 and has experienced job loss in seven out of the last ten years. brieflyGary recovered from the Great Recession of Like population decline, the city is also experiencing job loss. The City of Gary had a total net loss of more than 3,800 jobs between Instead of1.2jobsperemployed resident, theratio would flip to 1.5employed residents for everyGary. jobin as a whole. If Gary had a similar level of residents in the labor force, there would be an additional 8,300 residents in the labor force. (nearly 630 people per year). city’s demographic challenges more than its strength the as reflects fact a this job but everyemployedresident,center. for jobs 1.2 with Between employedresidents than 2010 jobs and more has 2018, Gary Gary manufacturing. lost six percent of its population Gary’s economy iscurrently suffering theeffects ofdecadespopulation declineandrestructuring inkey industries, suchas Economy

U.S. CensusBureau, PopulationEstimatesProgram (PEP),April1,2010toJuly 1,2018.PopulationandHousing UnitEstimates. • • • Significant transportation and infrastructure assets. Available landsuitablefor industrial use;and A central location for theU.S. andCanadianmarkets 3 Only 51 percent of working-age residents are in the labor force compared to 63 percent for the U.S.

69 5. WHERE WE ARE NOW at-a-glance

JOBS SMALL BUSINESSES 29,656 jobs in Gary 6,467 small businesses in Gary

labor force participation 64% 31% 51% rate women-owned men-owned 80% 17% 1.2 jobs per employed resident minority-owned non minority-owned Note: Remaining % difference represents businesses that are both or not classifiable by race or gender.

MEDIAN HOUSEHOLD INCOME

Gary Lake County $28,895 $50,905 -26% Decrease in median household income since 1999

Sources: Median Household Income - US Census American Community Survey (ACS) 2012-2016 5-year estimates, US Census 2000 and 2010; Jobs and Top Employment Sectors - US Census LEHD 2005 and 2015; Small Businesses - US Census Survey of Business Owners and Self-Employed Persons (SBO) 2012

70 City of Gary Comprehensive Plan $6 $9 $8 $5 $7 Annual Job Change in the City of Gary 2005-2015 Annual JobChangeintheCityofGary EMPLOYMENT OVERTIME STRUCTURAL DEFICIT $6 $8 $5 $7 0, 0, 0, 0, 0, 5, 5, 5, 5, 000 00 00 00 0 0 00 00 00 00, 00, 0, 0, 0, 0, 0, 0, ,0 00 00 00 00 00 00 00 00 00 0 0 0 0 0 0 0 0 FY 2 01 0F T ot Y al 20 R 11 ev en FY ue 2 s 01 2F Y Ex 20 pe 13 nd FY it ur 2 01 es 4F Y 20 15 *F Y 20 16 GENERAL FUNDBUDGET $100M $ $ $ $ $ 2010 $ $ $ $ $ $54M $ $ $ 2016 $ $

71 5. WHERE WE ARE NOW KEY INDUSTRIAL SECTORS

Because Gary lacks the resources to go it alone, the City of existing base of innovative businesses involved in food Gary can maximize its development opportunities by aligning production, processing, and packaging. its plan with the Forum Ignite the Region strategy and leveraging the resources and capacity of these It is important to note that there are trade-offs between these organizations to advance the development of Gary. Based on sector opportunities that have to be balanced in planning for Gary’s strengths, there are three primary sectors of opportunity the future. Some of these trade-offs and considerations include: for industrial development in the City of Gary. • Intermodal activities can support and complement • Heavy Industry. Gary has a strategic location in proximity both heavy industry or agricultural products and food to Chicago and intermodal transportation infrastructure, processing. as well as manufacturing and other end users. It also has a strong manufacturing culture and deep base of skills, with • Heavy industry fits the traditional economic base of the an existing manufacturing sector partnership in the region. City of Gary and has many of the location factors desired There are opportunities to expand into several subsectors by these industries, but many of these industries are not of heavy industry including steel/metals, chemicals, generating more job opportunities. plastics, wood products, machinery, manufacturing tools, • Agricultural products and food processing is a growth electronics, and biofuels. sector, but it is sensitive to air quality that could negatively • Intermodal Transportation and Logistics. Northwest impact the processing and packaging of food. To grow this Indiana lies within a day’s drive to 80 percent of the sector, Gary will need to find sites that provide sufficient U.S. population. With its easy access to Chicago, major air quality and that will not be impacted by pollution from highways (I-90, I-80/1-94, and I-65), and network of Class nearby heavy manufacturing. 1 railroads, as well as its port and airport facilities, Gary can attract intermodal transportation and logistics industries, particularly in the Buffington Harbor area. A CITY OF OPPORTUNITY • Agricultural Products and Food Processing. A number of major employers in the agricultural and food processing Gary is poised to become a “City of Opportunity” for women industry are located nearby, such as Albanese, American and minorities who want to own their own business. Gary Licorice, Cargill, ConAgra, Urschel, and Monsanto. Gary’s features a large proportion of women and minority-owned strong transportation infrastructure and intermodal small businesses. Out of approximately 6,500 businesses in connections, including marine, rail, air, and trucking the City of Gary, there are more than 4,100 women-owned connections would serve their transportation needs. Gary businesses and more than 5,100 minority-owned businesses. At also offers proximity to major population centers and 64 percent, the rate of women-owned businesses is twice the consumer markets which would further attract businesses rate for the U.S. and the percent of minority-owned businesses in this sector. The City has an opportunity to leverage its in Gary is 80 percent, more than three times the rate for the

72 City of Gary Comprehensive Plan TABLE 5-2.BUSINESS DEVELOPMENT PROGRAMSANDRESOURCES incubators, accelerators, andco-working spaces that canfurtherfuelGary’s home-grown entrepreneurial energy. should ensureGary that its land use and zoning codes allow more vacant and underutilized space to beconverted for business the Stage Small Business Incubator, Gary has already taken steps to create an environment to nurture entrepreneurs and startups. and ArtHouse developmentof the and GMI, the of creationThrough the resourcespartners. regional available stateand through existingof variety entrepreneursthe newtoconnect to help will city the in ownersbusiness minority and women the (GMI),and InitiativeMicro-Enterprise Gary the programs, these between linkages stronger Building entrepreneurs. and businesses Gary for for entrepreneurship and business development. Table 5-2 provides a list of existing programs and resources that provide support Therearetwocurrentlymore dozenprogramsthan and Northwestorganizations, areagencies, in providing that Indiana support from thedecisionsofexternally-owned corporations. future to mentors as experience their leverage can generationsGary of business owners, owners. Increasing minority the locally-owned and and operated women businesses in existing Gary helps of to insulate base the Gary economy significant a With U.S. Incubator The Stage SmallBusiness Park of NWI Center andResearch Purdue Technology Manufacturing Excellence Commercialization and Purdue chapter) Center (state, local Business Development Northwest IndianaSmall Initiative (GMI) Micro-EnterpriseGary Kitchen ArtHouse: ASocial Program entrepreneurship education programs. to test theirbusiness ideaandoffers financialliteracy classes, permitting workshops, and other build theirown stage for business success. The space hosts retail pop-upstores for entrepreneurs Gary’s first co-working space where entrepreneurs canlearn,create, network withothersand variety ofbusinesses. Center provides reasonably priced, flexible incubation space, as well asashared office services toa Modeled after Purdue Research Foundation’s successful incubation program inWest LaFayette, the manufacturing opportunities-related training for manufacturing companies ofallsizes. development andtechnological transfer throughout Northwest Indianaandprovides advanced Purdue Commercialization andManufacturing Excellence serves asacatalyst for economic and sustainability andto helpHoosierEntrepreneurs start stronger, grow faster, andwork smarter. small businesses withthehopeto make positive andmeasurable impact onitsformation, growth, The IndianaSmallBusiness Development Center (IndianaSBDC)provides technical assistance to and otherbusiness-related topics. businesses. Participants learn business structure andplanning,financialmanagement,marketing, Department ofCommerce andU.S. HUD’s Community Development Division–to thecity’s small GMI isaneight-week entrepreneurship training course provided –inpartnershipwiththe city’s pop-up café,andgallery/exhibition space. businesses, culinarybusiness incubation program (CBI), rental space for events andmeetings,a ArtHouse provides access to acommercial kitchen rental for localresidents andemerging Description

73 5. WHERE WE ARE NOW INFRASTRUCTURE

• Freight rail is widely available through the city, but mobility The City of Gary is host to a diverse array of infrastructure assets is hampered by extensive at-grade crossings that must be and holds one of the most unique assets in the regional portfolio addressed. – the Gary/Chicago International Airport (GYY), a full-service airport that is capable of serving general aviation, corporate, • Truck routes provide a high level of service on both north- commercial, and cargo users. GYY’s 8,859 foot runway is the south and east-west routes, but the local road network is longest in the region after O’Hare. GYY can handle aircraft from deficient in many places. anywhere in the world and provides a fully-staffed air traffic For Gary to grow its industrial base and the transportation and control tower that avoids the congestion outside of O’Hare and logistics industry, these assets must be developed to better link Midway airports. the vacant, available land in Gary with intermodal transportation that provides easy access to customers and suppliers. GYY anchors a multimodal transportation hub that benefits Gary and all of Northwest Indiana. The Gary/Chicago International Airport is also home to a state-of-the-art General Aviation U.S. Customs and Border Protection (CBP) facility. This is the newest CBP facility in northwest Indiana and the Chicago metropolitan region and provides airport users with new international travel options. GYY also sits within the boundaries of a Free Trade Zone, providing additional benefits to airport customers.

The economic future of Gary, and its ability to develop and to maintain the manufacturing and logistics base of the region will depend on a number of critical transportation and infrastructure assets. These assets are shown in Figure 5-12 and described further in the Transportation section of this chapter.

• Buffington Harbor (port) provides long-term capacity for expanding shipping and complementing the Port of Indiana Harbor. • Gary/Chicago International Airport links to road and rail assets but further development is hindered by land use and environmental constraints.

74 City of Gary Comprehensive Plan Source*: USA Major Highways and US Railroads, ESRI, FIGURE 5-12. EXAMPLE OFKEYINFRASTRUCTURE ASSETS INGARY * Bestavailable dataattimeofpublication

75 5. WHERE WE ARE NOW STRUCTURAL DEFICIT

Gary’s government spending has long exceeded the amount expenditures required by that parcel provides an estimate of it receives in taxes in a given year, a concept called structural the return on investment (ROI) per acre. To balance its tax deficit. The City relies heavily on property taxes, but these base, the City needs to reduce the properties with a negative taxes cover only 42 percent of the expenditures needed to run ROI and increase the properties with a positive ROI. The city the City. Property taxes generate $953 per acre on average has one-third of its acreage with a negative ROI of more than – versus expenses of more than $2,200 per acre. The City has $1,000 per acre and two percent of the acreage with a negative been closing the gap between total revenues and expenditures ROI of more than – $10,000 per acre. There are 5,600 acres by cost-cutting and developing new revenue sources, but its where each parcel costs the City more than $100,000 each. budget remains challenged by the State-imposed property tax caps and by market conditions. Given the constraints on the City’s tax base and school system, the opportunities for development need to consider the cost According to analysis, most of the property in Gary costs more to deliver services. Based on what it costs the City to provide to service than it generates in taxes. This is due to a combination services, each type of property must generate a minimum level of low property values, State-imposed tax caps, and the rising of tax revenue to pay for the minimum level of services, as cost of services. For each parcel in the city, comparing the shown in Table 5-3. The Gary Community School Corporation maximum amount of taxes it can generate versus the estimated spends approximately $1,800 of local money per student.

TABLE 5-3. BREAK-EVEN TAX GENERATION BY Gary will need higher-value development that will generate more in taxes than it has to spend to service the land. The PROPERTY TYPE focus on restoring the tax base through redeveloping low-value Property Break-Even Tax Estimated commercial and industrial land allows the City to leverage one Type Generation per Acre* Value per Acre of its key assets and challenges – the large amount of vacant land. Restoring the tax base will allow the City to provide better Commercial $9,800 $445,000 services and a higher quality of life for residents. Industrial $3,200 $144,000 Residential - $32,400 $1.48 M Commercial** Residential - $3,000 $272,000 Ownership** *These values are based on a cost per acre - not the cost to individual owners or residents. **The tax generation applies to city tax revenues and does not consider school taxes or costs. Source: Lake County Assessor

76 City of Gary Comprehensive Plan bolster thelocal economy andcreate jobgrowth. to helping are that investments business the and of projects recent some describes significant following made The rebuilding. also in has progress it but challenges, many has Gary RECENT SUCCESSES • • • 2019 andfinish in2020. million $19.7 The investment 2023. ina250,000 square foot facility willbeginin through jobs 130 create will and Gary to IL Park, Bedford from headquarters its moving be Alliance Steel. fund. will Steel also donate $100,000 intotal to acommunity development U.S. payment, the to addition In Library. Public Gary the and Corporation, School Community Gary Gary, will generate $2millioninannualrevenue for theCityof that taxes of lieu in payment a includes deal The products. make sheetproducts, strip millplate incoils, andtin asset AMP billion facility $2 the atemployees 3,800 Steel’sThe program.revitalization U.S. of part as plant Works million for state-of-the-art technology into theirGary U.S. Steel. industrial area around thiscrossing. infrastructure andhundreds ofacres for development inthe safety at thecrossing presents anopportunityfor increased the ImprovingStates. United the in dangerous most the of crossing hasbeenthemost dangerous inIndiana andone railroad This Road. Clark North along crossing the close to of Transportation’s new Local TRAX Rail Overpass program million in matching state funds through Indiana’s Department Local Trax Project. .. te wl b ivsig a mnmm $750 minimum at investing, be will Steel U.S. As of December 2018, Alliance Steel will will Steel Alliance 2018, December of As In December 2018, Gary received $15.2 $15.2 received Gary 2018, December In Photo Credit:TheChicagoCrusader Amazon deliverystation • I-90 and I-94. The facility offers opportunities for people people for opportunities offers facility The I-94. and I-90 with 500employees andalocation offI-65withaccess to Amazon. training inSeattle. and $10,000 of investment an make they if employees 40 to develop theirown Amazon delivery service withupto Amazon recently openedadelivery station inGary

77 5. WHERE WE ARE NOW KEY TAKEAWAYS

• Gary’s jobs decline has been largely brought about by changes in the steel industry over the last 50 years, which has greatly reduced manufacturing employment. • Population loss has reduced Gary’s tax base, labor force, and the customer base for businesses that serve residents. • Gary features a high proportion of women and minority-owned small businesses. Increasing the locally-owned and operated businesses in the city could help to grow Gary’s economy and insulate it from external forces. • Gary needs partners with resources. The City of Gary can maximize its development opportunities by aligning its plan with The Northwest Indiana Forum to Ignite the Region strategy. • The three key growth sectors for the city include heavy industry, intermodal transportation and logistics, and agricultural products and food processing. • Gary must leverage its existing assets – location, available land, and transportation infrastructure – to reinvigorate its industrial sector as an engine for economic growth. • For Gary to grow its industrial base and the transportation and logistics industry, critical transportation assets (Buffington Harbor, the Gary/Chicago International Airport, freight rail, and truck routes) must be developed to better link the vacant, available land in Gary with intermodal transportation that provides easy access to customers and suppliers. • Gary has long suffered a structural deficit. Redevelopment must focus on generating property values and taxes that are higher than the cost to deliver services. • More employment districts are needed to build the tax base and provide more potential areas for jobs and development. • Gary has developed momentum with a string of recent business successes such as the Alliance Steel Headquarters and Amazon Delivery Station.

78 City of Gary Comprehensive Plan 4 KEY PRIORITIES: access to qualityjobs. between resources andneeds,itneedsto address thedisconnect between residents andindustry residents sothat Gary have As Gary redevelops, it must leverage the strengths of its edges to rebuild the core. It needs to strategically address the disconnect GARY’S ECONOMY: WHEREAREWEHEADED?

4. 3. 2. 1. Note: Someproperty willhavetoremaintax exempt, sotheCitymayonly be abletorealizesomeportion ofthismaximumamount. and co-working spaces. with thelocaldevelopment efforts, vacant andunderusedspaces shouldbeconverted for business incubators, accelerators, regional resources should be organized in a network to coordinate and support entrepreneurship in the City of Gary.is no mechanism to coordinatePartnering these programs or ensure that referrals are made to different providers. The existing state and and prosperity through locally-owned businesses. A number of programs and assets are already operating in the city, but there rates of women and minority-owned businesses. Gary can become a City of Opportunity and help local residents build stability Make aCityofOpportunity. Gary • • Grow theTax Base. these with align to evaluated be opportunity sectors sothat landassembly andpreparationmust canbetargeted to generateit thehighest impact. but redevelopment, for land vacant abundant has Gary exists. force labor local of Gary.of City the in Redevelopment employsectorscan prioritizeresidentsthatthe whereefforts should pipeline these and a developmentfor targets also are that those on emphasis special a with plan, Region the Ignite the in targeted industries to Develop OpportunitySectors. development, there shouldbeadesignated singlepointofcontact for alloftheseproperties. intermodal sites should be designated as high priorities for investment and development in the near term. In order to facilitate other and airport the networks. parcels near trucking industrial Available and freight rail Harbor, the Buffington and - airport the and Airport InternationalGary/Chicago surrounding areas, aswell asthekey the elementsoftheregional intermodal transportation infrastructuremarket that complement the and develop to partners regional with coordinate must It goals. its Leverage Regional Resources andInvestments for Infrastructure. even withtheState-imposed taxcaps,itcould generate anadditional$39.5 millionannually. Convert Tax Exempt Properties to Taxable. achieve break-even, itcould increase Gary’s property taxrevenues by asmuch$139 millionannually. Rising Tide. Targetinvestments propertiescan improvetothese negativeIf a ROI. with properties,underperformingthose The Cityshouldhelp grow thetaxbasethrough acombination ofthefollowing strategies: Workforce and training agencies should identify the pool of Gary residents with skills transferable Despite its many challenges, local entrepreneurship has taken root in Gary. The city has high IftheCitywere to convert allofthetax-exempt properties into taxable properties, Gary lackstheresourcesGary to independentlyachieve allof 4

79 5. WHERE WE ARE NOW KEY INDICATORS

The following is a list of key indicators that will be used going forward to understand trends, evaluate progress, and guide future decision-making as it relates to Gary’s economy.

• Jobs per Employed Resident. Representing both the city’s demographic challenges and strength as a jobs center, this measure tracks the evolution of the labor force and employment base in the city. • Jobs in Target Industry. Given the city’s focus on a few targeted sectors, this economic indicator captures the change in jobs (and businesses) within the city. • Structural Deficit.Overall this metric illustrates how effectively the city is bridging the gap between revenues and expenditures. • Woman and Minority-Owned Businesses. Women and minority-owned businesses are a key measure of the “City of Opportunity.”

80 City of Gary Comprehensive Plan HMD Truckingfacilitygroundbreaking inGary.PhotoCredit:IndianaEconomic DevelopmentCorporation

81 5. WHERE WE ARE NOW 82 City of Gary Comprehensive Plan Gary’s natural landscape, better managestormwater, andrevitalize neighborhoodsthrough beautification and recreation. connect and protect, expand, can City the how for direction provides Lastly, future stormwater it management. and floodplains, section following The air. and water, land, city’s the of provides an overview quality of environmental conditions in the city, the including existing threaten open space and conservation land, wetlands, which of all dumping, illegal and species, invasive Yet these natural resource assets coexist alongside issues of severe flooding, polluted stormwater runoff, contaminated properties, park landinadditionto otherunmanagednatural areas andopenspaces. managed actively of acres 109 and wetlands,ecosystem, of conservedacresduneland 4,269of acres lakefront, 2,623 of miles 13 species, native biodiversity,rare its including recreational opportunities, and reasons,its beauty. possessesGary of both significant environmental assetsnumber and challenges. The city contains a for of special shores is ecosystemsouthern Dunes the Indiana spans The that Michigan. environmentLake coastal diverse and unique a ecosystem, Dunes Indiana the within exists Gary Nature

83 5. WHERE WE ARE NOW at-a-glance

MILES OF LAKEFRONT PARKS

57 30 27 total active inactive 3.5 miles of lakefront with public access 13 acres of actively 109 managed parks

OPEN SPACE TRAILS

miles of existing 4,269 acres of wetlands 12.9 trails

acres of miles of existing + 30 planned trails 2,623 conservation land +

Sources: City of Gary; Acres of Wetland - US Fish & Wildlife; Park Acres - Parks Department and Assessor Files on Ownership; Gary Green Infrastructure Plan 84 City of Gary Comprehensive Plan 85 5. WHERE WE ARE NOW EXISTING CONSERVATION LAND

Gary’s existing conservation areas reflect an Indiana Dunes ecosystem that existed prior to modern development. This ecosystem is comprised of sand dunes, oak savannas, swamps, bogs, marshes, prairies, rivers, and forests, all of which mix together over 15,000 acres and 15 linear miles of National Lakeshore, State preserves, land trust properties.

Formed from the movements of prehistoric glaciers, the Indiana Dunes stand at the crossroads of many different ecosystems, resulting in a unique mixture of soils and plant life that are rarely found in the same location. Jack pines that are common to the northern regions of Canada coexist with prickly pear cactus, more common to the American southwest. Reptiles like the Five-lined Skink and the Slender Glass Lizard, more Indiana Dunes National Park commonly found in the American southeast, coexist with rare and endangered wildlife like the Butterfly. In total, over 1,400 species of vascular plants and over 900 different wildlife species exist in the Indiana Dunes, making it the 8th most diverse ecosystem in the National Park system. Due to its biodiversity and rare native species, the Indiana Dunes played an important early role in the development of ecology science, by serving as the living lab for Henry Cowles, an early 20th century botany scholar at the University of Chicago, known as the “father of plant ecology.”

The Indiana Dunes also boasts many globally-rare landscapes, including black oak savanna, an ecosystem where eastern hardwood forests meet western tallgrass prairies. Less than 0.02 percent of high-quality black oak savanna still exist in the Midwest, making the 1,045 acres in the Indiana Dunes a significant concentration of this rare feature. “Dune and swale” is also a globally-rare landscape found in the city and is composed of parallel ridges with marshy depressions formed by the glaciers and receding coastlines. This landscape is home to many rare plant and animal species.

86 City of Gary Comprehensive Plan for approximately 300acres ofduneandswale landscape, including sand combine Preserve Nature Pine and Clark comprise that parcels the primary Resources,two Natural of Department Indiana the by managed and Owned CLARK AND PINE NATURE PRESERVE running from onefeature to thenext. forested dunes, marshes, bogs, prairies, and a succession of unique plant life The Trust. Land Dunes ecosystem, Indiana Heinze with the trails to in Shirley featuressupport public unique access. of and This range includes entire black Service the oak savanna, possess properties Park National the by owned Miller Woods,propertiesBaylessGreencombinationareof Heronand a Dune Pond, lakefront, east Gary’s on neighborhood Miller the bookend to Serving BAYLESS DUNE MILLER WOODS/GREEN HERONPOND/ National Park Service. The entirety ofGary’s beachfront ispublicly-owned by andthe theCityofGary addition to public beaches. The ecosystem is dynamic and perpetually shifting. total (over 22 miles). This includes grass-covered sand ridges and blowouts, in publicly-accessibleof beachfront, representing nearly16percentcomprised oftheregional is miles 3.5 Gary, in coastline Michigan Lake of miles 13 the Of LAKE MICHIGANCOASTLINE Nature preserve, andtheLittleCalumetRiver Ivanhoe Prairie andWetland. Preserve, Nature Pine and Clark Dune, Woods/Green Pond/Bayless Miller Heron Coastline, Michigan Lake the Gary: in landscape native conserved of areas primary five are there city, the throughout found be can well as active and inactive City as parks. city,While remnantthe featuresin of land this ecosystemconservation Park shows 5-13 Conservancy.Figure Nature National and the by Trust,Land managed Heinze ShirleyResources, Natural of Department ecosystem,Indiana Service, duneland conserved of acres 2,623 possesses Gary Dunes, Indiana the to gatewaywestern the as Serving ay re Ln Pa ad h Green the and Plan Infrastructure Plan. Link Green Gary This section draws heavily from the

87 5. WHERE WE ARE NOW savanna, sand prairie, wet prairie, sedge meadow, emergent marsh, and shrub swamp. These properties are located just east of the Gary/Chicago International Airport and are completely surrounded by industrial uses and heavy infrastructure. IVANHOE NATURE PRESERVE

Managed jointly by the Nature Conservancy and Shirley Heinze Land Trust, Ivanhoe Nature Preserve provides approximately 113 acres of dune and swale, composed of black oak savanna, sandy beach ridges and narrow wetlands, with diverse communities of flora and fauna. Ivanhoe is located directly to the west of Gary’s Brunswick neighborhood, with 5th Avenue (U.S. 20) splitting the north and south portions of the property.

Wetlands LITTLE CALUMET RIVER PRAIRIE AND WETLANDS

Running along the Little Calumet River from Cline Avenue to Martin Luther King Boulevard, hundreds of parcels make up this federally-designated floodplain area. The area is a mixture of wetland, prairie, and woodlands. This natural corridor is managed by a combination of the Little Calumet River Basin Development Commission, the Gary Department of Public Parks, and Indiana University Northwest (IUN). It is highlighted by an 80-acre site that is bisected by the Little Calumet River, west of Broadway, and to the northwest of Gary’s Gleason Park and IUN. The prairie and wetlands provide a critical buffer between the Little Calumet River and adjacent development during flood events.

88 City of Gary Comprehensive Plan Vacant toVibrant siterenderinginthe Aetnaneighborhood. PhotoCredit:CityofGary DepartmentofGreen Urbanism landscaping corps that includesplantandsoilexperts who An example istheCity’s Urban Conservation Team, amunicipal environmental assets with its workforce development needs. also criticalfor connecting themanagementofcity’s are organizations environmental various with Partnerships accessible natural areas for residents. and inmany instances, expands well-maintained, publicly- these public agenciesandlandtrusts increases habitat for and wildlife, City the between Partnerships focus. primary a consolidate fragmented habitat into a cohesive property is In particular, acquisition ofparcels that connect and areas is a primary focus of these organizations and land agencies. existing their of holdings, theacquisition ofvaluable, unprotected natural oversight to addition In wetlands). enhancement activities inthecity’s natural areas (including in Gary, overseeing landmanagement,restoration and land trusts are the primary stewards of conservation land Irrespective of the habitat type, public agencies and nonprofit PARTNERSHIPS FOR ENVIRONMENTAL MANAGEMENT &WORKFORCE DEVELOPMENT en. h Ubn osrain em rgnly rw out grew originally Team Conservation Urban The . the throughout Downtown, City’s parks,andat theexisting including Vacant to Vibrant sites in city, the through maintain decorative landscapingandgreen infrastructure green infrastructure, andlandscapingbusinesses. for runningorworking at successful habitat management, will develop skillsthat could potentially serve asthebasis As employees come through contractors. theUrbanConservation Team, they local of capacity new participantscome through for Gary Jobs,andnew the increase also will City’s the focus ongreen infrastructure workforce development term, long the Over Gary. in workforce infrastructure infrastructure, by advancing thetraining ofalocalgreen of ability to effectively manageconservation landandgreen development continued the UrbanConservation Team and willincrease theCity’s expansion, Oversight, population. re-entry city’s on the focused for development which workforce initiative, Jobs” for “Gary City’s the of

89 5. WHERE WE ARE NOW GARY’S PARKS: NATURE IN THE CITY

The environment, of course, does not start and stop at The native features overlap with a section of the park that the boundary lines of conservation land. Gary’s 57 parks, includes an abandoned pool. playgrounds, and tot lots serve as critical sources of open • Diamond Park. Located at 25th Avenue and Prospect Street space within the city’s neighborhoods. The following provides in the Pulaski neighborhood, standing at 47 acres, Diamond information on high-value natural resources at many of Gary’s Park sits directly to the north of the Little Calumet River, parks (and a few school sites). City parks are described in more the floodplain, and Little Calumet River Basin Development detail in the Built Environment section of this chapter. Commission property. While the park is almost entirely • Marquette Park. The crown jewel of Gary’s park system, and overgrown, it possesses significant wetland features. abutting the Indiana Dunes National Lakeshore property, • Ernie Pyle School. Located in the Tolleston neighborhood Marquette Park boasts numerous high-quality natural at 19th Avenue and Taney Street, the vacant Ernie Pyle features of the Indiana Dunes ecosystem, including sand school site holds nearly 8.5 acres of upland woods on a dunes, lagoons, upland forests, and wetlands. The park preserved forested dune, with a corridor of black oak trees underwent a $28 million redevelopment and enhancement running perpendicular. in 2010, including restoration of the dunes, remediation of • Little Calumet River Wetlands and Gleason Park (southern the lagoons, and installation of wet prairies on the eastern corridor). Located just northwest of IUN, Little Calumet portion of Grand Boulevard. River Wetlands, and Gleason Park include a mixture of • Brunswick Park. One of the largest parks in the city, wetland, prairie, and woodlands. Brunswick possesses 33 acres of remnant black oak savanna, dune and swale, and upland forest, and has been the focus of recent trail development and wetland mitigation efforts. • Hatcher Park. Located in the Pulaski neighborhood, and sitting directly to the north of the wetlands that run along the Little Calumet River corridor, Hatcher Park possesses bottomland forests while the southern portion exists in the floodplain. • Seberger Park. Located on Bell Street and 25th Avenue, Seberger Park possesses 6.5 acres of wetlands and forests that include rare and native species. • Edison Park. Located in the Brunswick neighborhood, Edison Park possesses 4 acres of native prairie and woodlands, on the northern portion of a vacant school site. Marquette Park

90 City of Gary Comprehensive Plan Source*: Cityof GaryRedevelopmentCommission andPublicParksDepartment, DeltaInstitute FIGURE 5-13. EXISTING CONSERVATION LANDANDACTIVE CITYPARKS * Bestavailable dataattimeofpublication

91 5. WHERE WE ARE NOW FLOODING AND STORMWATER MANAGEMENT

Gary struggles with significant flooding and stormwater issues. Little Calumet Rivers, ultimately ending up in . This is a product of two main factors: impervious surfaces and As a result, Gary’s Combined Sewer Overflows (CSOs) have the high water table along its rivers. As a dense urban city with negative impacts on the water quality, and for this reason, a vast number of streets, parking lots, and existing structures, a the U.S. Environmental Protection Agency (U.S. EPA) placed large percentage of the city’s surfaces are impervious, meaning the Gary Sanitary District (GSD) under a consent decree to that when it rains, stormwater is less likely to be absorbed better control its CSOs through the creation of a Long Term where it falls, and instead runs off into the City’s sewer system. Control Plan (LTCP). The LTCP will provide alternatives, design The second factor is the high water table along riparian areas and performance criteria, and a capital improvement schedule like the Little Calumet River. During rain events or periods of to assist GSD in reducing CSO-related pollution over a 25- snow melt, the river’s surface water can overrun its banks, and year period. Figure 5-16 shows Combined Sewer System and flood the adjacent areas, which is particularly problematic if Municipal Separated Stormwater Sewer System areas in the those areas have impervious surfaces. Excessive flooding and city. stormwater runoff can cause damage to existing structures and infrastructure in the city, and pose numerous threats to water quality, by overwhelming its sewer systems, and carrying MUNICIPAL SEPARATED pollutants into fresh water bodies. Figure 5-14 shows the STORMWATER SEWER SYSTEMS federally-designated floodplains in Gary. The following section describes the water quantity and water quality issues in Gary. (MS4S)

Gary also possesses a Municipal Separated Stormwater Sewer COMBINED SEWER OVERFLOWS System (MS4) as shown in Figure 5-16. Most of the MS4 areas are AND THE LONG TERM CONTROL located along the Little Calumet River, a riparian corridor prone to flooding, as well as Glen Park, and areas north of U.S. Route PLAN 20. In Gary as in other communities, MS4’s do not connect with wastewater treatment facilities. In turn, polluted stormwater Like many legacy cities, Gary has a combined sewer system runoff simply enters the MS4, and is disposed untreated into (see Figure 5-15 Gary Stormwater Diagram) that joins domestic the city’s water bodies. Due to the serious implications that sewage, industrial wastewater, and stormwater runoff into the this system can have on water quality, MS4’s are regulated same pipe. This system is designed to efficiently transport the by the U.S. EPA and Indiana Department of Environmental combined wastewater to a sewage treatment plant, where it is Management (IDEM) under the National Pollutant Discharge treated, and then discharged into a water body. The problem Elimination System (NPDES) through a permitting process. To with a combined sewer system is that during large storm reduce the risk of non-point source pollution from properties events, when a significant volume of stormwater rushes into and development sites in the city, the Gary Stormwater the system, the wastewater in this system will overflow and Management District undertakes a series of Minimum Control discharge polluted, untreated water into either the Grand or Measures (MCMs) with property owners and developers.

92 City of Gary Comprehensive Plan factsheet-refs / MichiganStateGLISA.Retrieved fromhttp://glisa.umich.edu/gl-climate- the 5 Likewise region. Lakes Great U.S. over the across by percent increased 13 has change. precipitation by climate annual total beimpacted 1951, to Since likely is flooding Local 35th Avenue, andHarrisonStreet. Street,Grant Road, Clark at grade road the raising and Street, atBurr improvements station pump includes This floodplain. in Gary, aswell levees asacquire andmanagecriticalparcels inthe River’s the to improve efforts significant made has its oversees levee that system and adjacent floodplain. Since 2008, authority the LCRBDC public Development a Basin (LCRBDC), River Commission Calumet Little the The river by managed the region. is throughout million $881 was flood the flooding of cost the massive that estimated is it experienced total, In damage. property river and the to adjacent sit that Calumet Little the neighborhoods the of many and week, a tofor closed wasRiver) parallel runs (which 80/94 Interstate Gary, In flooded, NorthwestUniversity hours. Indiana at 24 campus the in of much fell rain of inches nine after region the the Little Calumet River flooded adjacent2008, propertiesSeptember throughoutIn Gary. in problem persistent a is Flooding RIVER FLOODING obligations from state andfederal agencies. City’s sewers andstormwater systems, andsatisfy itsregulatory This results inless revenues to fundbasicrepairs, modernize the payers. fewer rate from benefit but 200,000) of footprint city now managesystems that remain thesameinsize (builtfor a must GSWMD and GSD the vacancy,likeresulting utilities and disinvestment, loss, population to Due systems.infrastructure A key challenge facing theCityismaintainingtheseaging MAINTENANCE CHALLENGES ClimateChangeintheGreat Lakes RegionReferences.UniversityofMichigan 91 Sinit atcpt ti ted il otne n the in flooding. continue from damages will of likelihood trend the increasing this future, anticipate Scientists 1951. during thelargest storms increasing by 35 percent since storms hasincreased, withtheamountofrain falling frequency and intensity of extreme weather and severe park space to reduce the impact of flooding and runoff on runoff and flooding citizens. of impact the reduce to space park infrastructure represents aclearopportunityto reprogram this vacant andmany active parksunderutilized, green stormwater roads and buildings. Additionally, with 27 of the City’s 57 parks of many environment, urban the City’s parksare surrounded by impervioussurfaces like dense a into built Oftentimes greenstormwaterinstalling for location infrastructure.ideal an as problems serving stormwaterflooding by and management land, theCity’s parksalsoholdthepotential to assist with access with to recreational amenitiesandhighvalue conservation residents city’s the provide parks Gary’s of many While MANAGEMENT PARKS ANDSTORMWATER Green infrastructure projectinfront ofCityHall 5

93 5. WHERE WE ARE NOW FIGURE 5-14. FEMA FLOODPLAINS

Source*: FEMA * Best available data at time of publication

94 City of Gary Comprehensive Plan Source: GaryGreen InfrastructurePlan FIGURE 5-15. GARY STORMWATER DIAGRAM

95 5. WHERE WE ARE NOW FIGURE 5-16. GARY COMBINED SEWER SYSTEM AND MUNICIPAL SEPARATED STORMWATER SEWER SYSTEM

Source: Gary Green Infrastructure Plan. Source*: Gary Green Infrastructure Plan * Best available data at time of publication

96 City of Gary Comprehensive Plan KEY TAKEAWAYS • • • • • • Vacant and inactive City parks provide an opportunity to reduce flooding and stormwater runoff through the through runoff stormwater and flooding reduce to opportunity installation ofgreen andblueinfrastructure. an provide parks City inactive and Vacant Vacant landprovides anopportunityto expand andconnect existing openspace andrecreation assets. sewer and stormwater prioritize to where infrastructureon to match future usersandsupportfuture growth.utilities, City’s the for framework a provide can plan This agencies. repairs, modernize theCity’s sewers andstormwater, andsatisfy itsregulatory obligations from state andfederal basic fund revenues less to in fewer from payers.results rate This benefit but size in same the remainsystems that manage now must GSWMD and GSD the vacancy,likeresulting disinvestment,utilities and loss, population to Due Severe floodingand stormwater managementissues threaten thequalityofcity’s landand water. Much ofthecity’s most sensitive natural habitats sitdirectly adjacent to heavy industry. The City of Gary is rich in natural assets, with unique and biodiverse habitats, such as the dune and swale landscape.

97 5. WHERE WE ARE NOW GARY’S NATURAL CONTEXT: WHERE ARE WE HEADED?

Even with the significant environmental assets and improvements made in Gary and Northwest Indiana over the last 50 years, the 21st century brings an emerging series of environmental challenges, driven increasingly by climate change. Future environmental efforts in the city will need to focus on expansion, restoration, and enhancement of Gary’s native landscape while balancing existing and future development with nature.

KEY PRIORITIES

1. Restore Ecological Health. As a legacy industrial city, Gary struggles with contamination issues on many of its industrial and commercial properties. In addition to contaminated brownfields throughout the city, the majority of the city’s developed land is built on an urban fill whose composition may not match that of the native soil, nor be clean enough to grow native plant species. In addition, climate change, stormwater runoff, poor soil conditions, existing transportation practices, and invasive species threaten the health and stability of Gary’s ecosystems. To restore the ecological health of natural areas in and around developed parts of the city, work must be done to remediate soil and water, and to remove invasive species. In addition, land use and development policies should be put into place that help limit the spread of invasive species and buffer natural assets from sources of pollution. 2. Balance Nature and Development. In planning the city’s future land use patterns, the task of balancing nature with existing and future development involves numerous complicating factors, including how to retrofit areas to better address environmental concerns without inhibiting development, or how to engage in vacant land management strategies that benefit other adjacent uses. While protecting natural areas is a critical concern, in a city like Gary that has struggled with disinvestment and a loss of jobs, population, and tax base, redevelopment and economic development are deeply critical needs. There are a number of measures that the City can take to balance industrial redevelopment with environmental protection. 3. Development Regulations. Sound land use policies and development regulations should be put into place to guide a development’s location and apply controls on the environmental impacts from a particular land use (like air pollution, stormwater, etc.). 4. Wetland Mitigation. Opportunity exists to establish wetland mitigation techniques such as restoration, creation, or enhancement of wetlands, to compensate for permitted wetland losses in industrial and redevelopment areas. 5. Green Land Buffers. The establishment of land buffers should serve as a key strategy in the City’s long-range planning. Land buffers are effective at reducing the impacts of development on water bodies and natural areas, mitigating flooding from water bodies and wetlands in developed areas, and balancing incompatible land uses (i.e., reducing the impact of industrial areas on residential areas). 6. Implement the Green Infrastructure Plan. The recently completed Gary Green Infrastructure Plan (2019) provides a blueprint for how the City can plan, implement, regulate, and manage green and blue infrastructure improvements across the city.

98 City of Gary Comprehensive Plan decision-making asitrelates to Gary’s environment. The following isalist ofkey indicators that willbeusedgoingforward to understand trends, evaluate progress, andguidefuture KEY INDICATORS 8. 7. • • •

Sanitary District, City of Gary Board of Public Works and Safety, the City of Gary Department of Green Urbanism, federal Urbanism, Green of Department partners, state partners,non-profits, and Gary even developersGary moves as of to implementgreen infrastructure.City the Safety, and Works Public of Board Gary of City District, Sanitary Green Infrastructure Projects Completed. and assets. Acres ofConservation Land. are furtherimplemented andthenetwork grows. Miles ofTrails. draw visitors to the Indiana Dunes and promote eco-tourism as toa opportunity unrealizeddriver an is Thereforproperties. vacant economicand factories its developmentfor Gary viewand primarily job who regioncreation the in in many tothe city. environmental asset in the Chicago metro region and the Midwest, and the fact that Gary has a National Park can be surprising a population of around 10 million. That said, the Indiana Dunes can oftentimes stand as an unrecognized or under appreciated than a 40 mile from Downtown Chicago, it’s proximity within a densely-populated metro region makes it highly accessible to Promote Eco-Tourism. infrastructure.trail Link’s Green the of implementation the and habitat of restoration both City,including the conservation of this priority of the remainsimplementation loop project, visionary a remain Link Green Gary the of acresthe 9,735While and acquired. been miles has 38.25 land entire conservation new of acres Plan’s38.76 and the built, Since been life. has trail animal of and miles life, 1.2 plant 2005, in residents, adoption city’s the of benefit the to system, trail and loop conservation a into highlighted avisionfor enhancingandconnecting thecity’s various native ecosystems (and11outofthecity’s 15neighborhoods) Complete Green theGary LinkVision. Green Infrastructure The Planisdiscussed furtherinChapter 6.PlanningFrameworks neighborhoods. andprovided revitalize inAppendixA. and land, reduce vacant natural landscape, and Gary’s blight address quality, water improve and restore runoff, stormwater and toexpand flooding ability the have projects beautification and gardens, community parks, stormwater corridors, street green as such projects infrastructure blue and green targeted Plan, the in identified As Easily tracked by both currently existing trail network and those that go on-line as the Green Link and others and GreenLink the as on-line go trackedthat currentlyexistingEasily those byboth trail networkand The Indiana Dunes National Park stands as only one of four national parks in the Midwest. Situated less Agoodindication ofstewardship, andaway to monitor thehealthofGary’s various ecosystems Building upon Gary’s existing conservation assets, the Gary Green Link Plan (2005) Plan Link Green Gary the assets, conservationexisting Gary’s upon Building Abasicstandard to track progress onimplementingmodernpractices by theGary

99 5. WHERE WE ARE NOW 100 City of Gary Comprehensive Plan limiting theopportunity to access jobsbeyond theCitylimits. regional a as serve to continue will transportation hub, manycity residents Gary have limited accessthe to anautomobile andrely onpublictransportation forwhile mobility,Likewise itself. network the of extent and maintenance deferred of years the given challenge fiscal a remains network street local the of condition poor general the but creation), job (and expansion facility Gary’s extensive transportation network is both a blessing and a burden. It offers incredible opportunities for freight and intermodal 500 milesofsidewalks, andseveral hundred milesofalleys. Figure 5-18 shows thetransportation network inGary. hundredsand railindividual of connectingspurs trackmainline to adjacent properties. The overhas city 435 streets,local of miles inactivetrackof miles activetrack,48 of miles 108 with limits City existheavywithin railmainline of miles Over150 intersections. Within Gary, there are 67 miles of Interstate Highways and 54 miles of U.S. and State Highways served by multiple interchanges and transportation network. ShorecommuterSouth servesrailthe line addition, tomove residentsregion.throughoutFigure the 5-17 Gary shows regionalthe the region and many industrial parcels within the city have access to rail through existing rail spurs or the potential for new spurs. street In network is well connected to the regional grid. The extensive railroad network facilitates freight mobility to local the layoutGary roadways,of the major and highwayregional interstates,and and network, the throughaccessiblemultiple from easily is Gary well-establisheda strategicis its regional on transportationGary robustbased and hub location network transportation of assets. Transportation

101 5. WHERE WE ARE NOW at-a-glance

VEHICLE OWNERSHIP 9% Lake County of Gary households do not own a car, DOUBLE that of the county & state 19% 7% Indiana

WHERE WORKERS GO EACH DAY

Gary 22,788 5,407 16,667

Live outside, work in Gary Live and work in Gary Live in Gary, work outside

102 City of Gary Comprehensive Plan Outflow -US Census LEHD2015 Public Gary LODES data, Transportation Corporation (GPTC) Sources: Travel ModeandVehicle Ownership-USCensus AmericanCommunity Survey (ACS) 2012-2016 5-year estimates; Worker Inflow/ HOW PEOPLEGETTOWORK 11% 5% 2% Other/Telework Bike/Walk TransitPublic Carpool Drove alone 3% 79% GARY PUBLICTRANSITANNUALRIDERSHIP BMX 218,350 800,645 total ridesin2018 total ridesin2018 from 2017 33% from 2017 4.7%

103 5. WHERE WE ARE NOW FIGURE 5-17. REGIONAL TRANSPORTATION CONTEXT

Source*: USA Major Highways and US Railroads, ESRI, TomTom * Best available data at time of publication

104 City of Gary Comprehensive Plan Source*: INDOT RoadsandRailLines(IndianaMap), SouthShoreLine FIGURE 5-18. LOCAL TRANSPORTATION CONTEXT * Bestavailable dataattimeofpublication

105 5. WHERE WE ARE NOW Despite this success, the single largest challenge to the roadway ROADWAYS network in Gary is the condition of the local street network. Deferred maintenance, limited State and federal funding, lack The following section describes Gary’s existing roadway of revenue to provide local match requirements (usually 20 network, including highways, the local street network, and percent of project costs) to leverage state and federal funds, designated truck routes. Figure 5-19 illustrates the roadway the size of the network, and the volume of needs present network across the city. significant challenges. Local streets will continue to degenerate as maintenance continues to be deferred which in turn will require more intensive rehabilitation work. Further, the local HIGHWAYS street network is greatly impacted by flooding and drainage issues and the deterioration of drainage structures complicates Gary has robust interstate and highway access. Interchange roadway maintenance and rehabilitation and increases overall locations within the city from the highway network have project costs. Gary’s green infrastructure initiative (see the generally remained the same over the past several decades. The Green Infrastructure Plan, outlined in Chapter 6 and provided in non-tolled interstate and regional highway network in Gary and Appendix A) is intended to help reduce the costs of addressing throughout Northwest Indiana is operated and maintained by drainage issues throughout the city. the Indiana Department of Transportation (INDOT). Generally, the system is in good operating condition. Interchange and Mobility within the city is also hampered by one-way streets, access improvements, such as reconfiguration of the I-80/94 at-grade crossings of roadway and rail lines, the condition of and I-65 system interchange and the redesign of the I-65 and sidewalks, and the lack of “complete streets” that facilitate Ridge Road were completed in recent years and an expansion vehicular, pedestrian, and bicycle travel. of I-80/94 was completed in 2008. LOCAL STREET NETWORK TRUCK ROUTES

The interstates and highways that traverse Gary are also part Gary’s original street network has remained largely intact. of the National Truck Network that allows trucks of a certain Local streets, traffic signals, signs, sidewalks, and alleys are weight, size, and length to use the system without a permit. operated and maintained through the City’s Department of INDOT further classifies certain routes as Indiana Extra Heavy- Public Works. The City conducts routine maintenance, repair, Duty Highways designated to carry heavy loads that exceed the and rehabilitation of the local street network with a mixture of National Truck Network Standard. These routes are specifically local, State, and federal funds. The City is required by INDOT designed to withstand heavy loads associated with steel to maintain a Pavement Asset Management Plan (PAM Plan) manufacturing. U.S. 20 (Dunes Highway), SR 912 (Cline Avenue), to track, manage, and prioritize decisions related to roadway and 15th Avenue (north) are designated as Extra Heavy-Duty preservation and to support applications for federal-aid Highways. Beyond the Extra Heavy-Duty Highways designation, projects. Since 2014, 83.2 miles of local streets have been many other arterial and local streets are designated as truck repaved within the city routes, increasing conflicts with pedestrians and cyclists. Figure

5-20 shows existing truck routes through the city.

106 City of Gary Comprehensive Plan Source*: INDOT 2015(IndianaMap) FIGURE 5-19. EXISTING ROADWAY NETWORK * Bestavailable dataattimeofpublication

107 5. WHERE WE ARE NOW FIGURE 5-20. TRUCK ROUTES

Source*: City of Gary * Best available data at time of publication

108 City of Gary Comprehensive Plan completion. A portionofthetrail has beendeveloped withadditionalsections plannedfor the Lake Michigan shoreline, , and the Little Calumet River. providingand city accesscirclingthe trail vision to multi-use 30-mile a is Link Green Gary The system. Link Greenoverall the of part Trailis Marquette The former/abandoned railroad ROW. Miller Woods section west of Grand Blvd in the vicinity of U.S. Right-of-WaySteellegal obtaining associatedwith throughthe (ROW),thatparticularly involves the Greenway)Gary have notbeendeveloped of dueto complex real estate issues sections remaining the but planned trail from Grand – Blvd to Cline Avenue Section) (Miller Woods Greenway Greenway and the Marquette (Miller Blvd Grand to Road Line County from – constructed is trail the of portion A River from County Line Road in Miller to Cline Avenue on the west side of Gary. Marquette Greenway Trail that runs along the lakeshore and the Grand Calumet regional interconnected,trail system. an Part of this system of lies developmentwithin Gary and is the identified as the proposed Plan Marquette 2005 The Recreation and the Shirley Heinze LandTrust. Park County and Park National Dunes Lake Indiana Basin, River Calumet Little Department, the Department, Parks Gary the including entities severalby maintained and operated, owned, is system trail The 5-21. limited on-street facilities, has13milesofopentrails Gary asshown inFigure streets in Gary are not designed to safely accommodate bicyclists. Despite the Park in Miller and certain trail segments that use an on-street Marquettecomponent. Most to limited are city the within facilities bicycle on-street Dedicated conditions are poorandcontinue to deteriorate dueto alackofmaintenance. of network an extensive local street network, the condition of sidewalks varies the but generally sidewalkhas Like grid. street its with associated miles, Gary 500 approximately sidewalks, cyclists. accommodate to retrofitted condition general the to due of thesidewalks androadways challenging and becausevery few citystreets have been is Gary in bicycling and Walking FACILITIES BICYCLE ANDPEDESTRIAN COMPLETE STREETS to maximize efficiency for allmodes. designs and policies Streets” “Complete with conjunction in used often are and users all for that projects value enhance safety, increase access andmobility high cost, low are diets Road facilities. pedestrian and bicycle and/or lane, allowing additionalspace for transit lanes, lane roadway to two lanes with a center turn road diet project could a include reducing instance,a four- For parking. off-street and paths, uses suchasbike lanes,sidewalks, multi-use of lanes to accommodate othertransportation reconfiguration the existing roadways to reduce vehicular travel involve diets Road ROAD DIET persons with disabilities, motorists, movers of users ofstreets includingbicyclists, children, a to that isdesignedto meettheneedsofall refers Streets” balanced, multimodal transportation network “Complete term The promote safety andactive transportation. streets Complete guidelines. design roadway local levels andare frequently supported by Complete more.Street policies are set at the state, and regional, and lighting, landscaping, narrower travel lanes,streetscapes, accessible pedestrian signals,curbextensions, opportunities, median islands, crossing transportation stops, frequent and safe bus lanes,comfortable andaccessible public sidewalks, include: bike may lanes(or widepaved shoulders), special street complete context. local A the to suitable is that manner that provides one safe andconvenient travel ina is street complete A seniors. and riders, commercial goods,pedestrians, publictransit

109 5. WHERE WE ARE NOW The 2005Green LinkPlaniscan be found at… FIGURE 5-21. TRAIL AND BIKEWAY NETWORK

Source*: City of Gary, Delta Institute, NIRPC * Best available data at time of publication

110 City of Gary Comprehensive Plan favor buses, thatand installing bus stop infrastructure lanes” in Gary and Merrillville. Gary, “bypass installing resurfacing, roadway – corridor Broadway the improvementsalong capital on lead the takenTransportation has of (INDOT) Department Indiana the Plan, Broadway Livable the of completion the Since BROADWAY METROEXPRESS employment, intermodal transit, andoverall growth oftheregion. below. GPTC views its role as having a large stake in community development, service along Broadway from Downtown to Gary Merrillville, further described modernization, and improved connections. In 2018, GPTC introduced rapid bus Some of its recent improvements include more frequent service, infrastructure Township, Crown Point, East Chicago, Griffith, Hammond,sevenother TheFigureshown 5-22. in regional network routes reachCalumet Hobart, and Merrillville. local network –routes that operate completely limits,as withintheCityofGary It currently operates 12 routes a in Northwest Indiana. Five of transitthese comprise the regional made GPTCpriority since the launch legislation. of the region’s enabling first modern intercity through bus routes GPTC in and 1974 1996. in created Lines Intercity Gary purchased Gary of City The city. the within Transportation Public Gary Corporation (GPTC) provides public transit service GPTC BUSSERVICE Gary. in services and networktransit regionally.the describes followingsection The for access to employment, education, andservices withinthecityandmore Transit service hasalways inGary beenalocalandregional transportation asset TRANSIT including theMarquette Trail Green andGary LinkTrail. connect key neighborhoodsandresidents to otherproposed trail extensions elevated train line through the Midtown neighborhood of Gary. The trail would planning initiative that focuses ontheredevelopment ofanabandoned, Also shown on the map is the Gary Elevate trail project, a broad-based immersive hn h pann efr ws launched, it would includeexamining potential was effort planning the When corridor. Broadway the of study a mobility fund to grant a received GPTC 2013 In LIVABLE BROADWAY PLAN the IndianaPlanningAssociation in2016. Honorable Mention for Outstanding Plan by The barrier-free. multi-faceted approach was worthy of and livable Broadway oriented landuseefforts that would make transit- and ecological of “toolbox” a with transit-friendly, andproviding communities be to road the redesigning Merrillville, and Broadway recommended Livable upgrading transit onBroadway inGary ultimately Plan The Regional corridor. the sustainability and land use issues on

111 5. WHERE WE ARE NOW Merrillville, and the Gary Stormwater Management District assisted in funding the bus stop infrastructure. GPTC received grant funding for operations of the service and, recognizing the regional impact on travel between Gary and other communities, the Town of Merrillville and Ivy Tech signed agreements to assist in funding feeder service. The Legacy Foundation also helped fund a contest for branding and corridor artwork to improve Broadway neighborhoods. In February 2018, Broadway Metro Express – Bmx for short – was finally launched.

As the State’s first branded “rapid bus” service, the Bmx has brought light rail elements and improved service speed by incorporating limited stops and bus-only lanes at station approaches. In addition, substantial improvements have made to bus stops including prominent signage, sleek shelters, and Adam Benjamin Metro Center artwork. Since its inception, four new Bmx stops have been requested (three in Gary and one in Merrillville). In addition, Indiana University Northwest and Ivy Tech jointly opened a new building designed to maximize transit, and other developers are expressing interest in coordinating site layout with transit access. Bmx ridership in 2018 was 218,350 total rides, up 33 percent from 2017.

PASSENGER RAIL

The (SSL) is a 90-mile electric-powered commuter rail line that operates from South Bend International Airport to Millennium Station in Downtown Chicago, . SSL is operated by the Northwest Indiana Commuter Transportation District (NICTD). The SSL has provided service between Gary and downtown Chicago for over 100 years. The SSL has three station locations in Gary:

• Gary/Chicago Airport (Clark Road) • Gary Metro Center (Broadway and 4th) • Lake Street/Miller (Lake Street and U.S. 12) Public art benches at bus stops along Broadway

112 City of Gary Comprehensive Plan Source*: GPTC FIGURE 5-22.TRANSITNETWORK * Bestavailable dataattimeofpublication

113 5. WHERE WE ARE NOW Total weekday ridership from the Gary stations is approximately the presence of abandoned railroad bridges impede truck 1,100 passengers and the average commute to Chicago is a movements creating impediments for under-utilized properties little over an hour.6 Figure 5-23 shows the South Shore Line and or properties available for redevelopment. stations. FRA’s 2019 Web Accident Prediction System (WBAPS) Report (FRA, May 2019) provides five years of accident data (2014- While Amtrak passenger rail also runs through the City of Gary 2018) for 94 at-grade public crossings in the City of Gary. A (on shared rail lines with CSX), it does not stop within the city. total of 23 at-grade crossing locations in Gary report accidents. The nearest station is located in Chicago at Union Station. Six locations reported two or more accidents, including:

• Lake Street crossing (155637W) with CSX – 7 accidents FREIGHT RAIL • Clark Road crossing with NS (522646H) – 5 accidents • Old Hobart Road crossing with CSX (155633U) – 3 accidents Given its proximity to Chicago, an extensive rail network has • Clay Street crossing with Commuter been developed in Northwest Indiana over the past 100 years to Transportation District (870879M) – 2 accidents accommodate freight movement. There is an extensive railroad network within the City of Gary, largely owned and operated • County Line Road crossing with NS (522639X) – 2 accidents by three Class I railroads: Norfolk Southern (NS), CSX, and • Grant Street / Ridge Road crossing with NS (478677M) – 2 Canadian National (CN), along with numerous beltlines. CN has accidents recently invested over $150M in its Gary Kirk Yard operations near Buffington Harbor and U.S. Steel, north of the Gary/ An additional 17 crossings report at least one accident between Chicago International Airport. 2014-2018. Rail crossings and rail crossing accident data are shown in Figure 5-25 and Figure 5-26. RAIL CROSSINGS AND BRIDGES

According to the Federal Rail Administration (FRA) there are approximately 142 at-grade rail and roadway crossings within the City of Gary; 118 are public crossings and another 24 are private. FRA’s database does not differentiate between active versus inactive track lines. At-grade crossings include heavy rail, commuter rail (South Shore Line), and passenger rail (Amtrak’s use of CSX’s line). These at-grade crossings impede mobility for the driving public, freight and goods movements, emergency service providers, bicycles, and pedestrians and present safety concerns for everyone. Abandoned railroad bridges also pose a concern; many are in very poor condition and in some cases 6 Northern Indiana Commuter Transportation District Double-Track Environmental Analysis. Retrieved from https://www.doubletrack-nwi.com/ Freight rail underpass docs/environmental-assessment-appendicies

114 City of Gary Comprehensive Plan FIGURE 5-23.SOUTHSHORELINEMAP Source*: SouthShoreLine * Bestavailabledataattimeofpublication

115 5. WHERE WE ARE NOW FIGURE 5-24. REGIONAL FREIGHT RAIL NETWORK

CP to CN to Wisconsin, UP to Wisconsin, Canada Wisconsin WSOR to Canada Madison,WI WSOR Chicago South Shore & South Bend Railroad

UP to Janesville, WI N

UP

CP/Metra

UP CN

CN CP to Iowa Chicago O’Hare International UP Airport CP/Metra LAKE MICHIGAN CSX to CN to CN to Upper Michigan Detroit, Iowa CN Canada PROVISO CHICAGO UP CICERO UP CN to Omaha CN

and West BRC IHB Coast MICHIGAN BNSF INDIANA CLEARING (BRC) CSX MICHIGAN CITY NEW CARLISLE BNSF to COMMERCIAL AVE. (BRC) Seattle, Chicago BRC SOUTH BEND (NS) Midway PORT OF CHICAGO Denver, BNSF NS Airport IHB KENSINGTON (CRL/NS) NS St. Paul BAILEYTOWN NS to Toledo CN BURNS HARBOR (LMIC) CN BURNHAM (IHB) PORTAGE LA PORTE Detroit and HAMMOND/EAST CHICAGO (CSX) CN Illinois GARYGOFF (CN/GRW)MILLER (CSX) NS Points East Waterway CSX IAIS/Metra CN STILLWELL (CN) JOLIET CN NS CN KINGSBURY IAIS CSX to Cleveland, IAIS to CN CSX New York and Peoria Points East NS to Cleveland, New York and Southeast UP BNSF

CN INDIANA ILLINOIS UP to CSS CHICAGO SOUTH SHORE & SOUTH BEND CSS TRACKAGE St. Louis UP / CSX BRC BELT RAILWAY OF CHICAGO RIGHTS BNSF INTERCHANGE BNSF to Kansas City, CN to CN Texas and California Memphis, CP CANADIAN PACIFIC IAIS IOWA INTERSTATE New Orleans UP to Evansville; CRL CHICAGO RAIL LINK LMIC LAKE MICH. & INDIANA CSX to Nashville CSX NS NORFOLK SOUTHERN and Points South GWR GARY RAILWAY UP UNION PACIFIC 5-9-13 IHB INDIANA HARBOR BELT WSOR WISCONSIN SOUTHERN

Source*: Chicago South Shore & South Bend Railroad (www.anacostia.com/railroads/css) * Best available data at time of publication

116 City of Gary Comprehensive Plan Source*: Federal RailAdministrationCrossing Inventory FIGURE 5-25.RAILCROSSINGS * Bestavailable dataattimeofpublication

117 5. WHERE WE ARE NOW FIGURE 5-26. RAIL CROSSING ACCIDENTS

Source*: Federal Rail Administration Accident Reports * Best available data at time of publication

118 City of Gary Comprehensive Plan the next few years. and industrial expansion within the larger Buffington Harbor industrial area over enabling legislation willfacilitate theexpansion oftheportandredevelopment that will allow casino operations in Gary to relocate from Buffington Harbor. This its and surrounding area. Legislation the harbor was recently passed by for the proposed Indiana State changes Assembly industrial significant Harbor are However, Buffington there area. the within facilities port-related and port the of proper. Harbor Buffington of These landusesimpedeindustrial useoftheharbor andfurtherdevelopment use the dominate currently operations Casino (height andweight). loads oversize particularly traffic, truck accommodate better improvementsto the industrial area requires rehabilitation andupgrades includingintersection and in the top ten nationwide. Further, Buffington Harbor Road that runs through most dangerous the as at-gradeidentified been crossing State the Indiana in of has crossing Road Clark The crossings. railroad five includes which Road Clark via Steel) U.S. (including area Harbor Buffington the exit and enter trucks Most due to the presence of heavy trucks, severe flooding, and low clearance bridges. challenge a is area industrial Harbor Buffington the within mobility Accessand improvements. off Drive Harbor Buffington of Cline Avenue whichincludedanew grade separation development (bridge) androadway the by improved recently was Casino the including water-based area, Harbor of Buffington development the to the Access operations. facilitatecasino to 1995 in sold was harbor the of portion A lighthouse). small breakwatera of (including feet 1,200 and pier foot City onLake ofthe PortlandCement Company. Theapproximately is harbor acres55 2,000-a with corner the northwest in Michigan and was built in the late 1920’s to facilitate shipping from the Universalis located Harbor Buffington BUFFINGTON HARBOR(PORT) e. -49 e sq, f h Ct o Gary, of in City the codified of seq., is et 2-1469, and Sec. 1977, 1, February on 5247 No. Ordinance by established was Gary,(GPA)of Indiana Authority Port The GARY PORT AUTHORITY Development Framework Plan. currently intheprocess ofdrafting the is Directors of Board GPA The of presence. part a as establishing itselfasaland and maritime advance, also to intends GPA Framework) documents thepriorityinitiatives the (GPA Framework Plan Development GPA’s statutorily The authority. GPA’s authorized mission, vision,andgoverning the Framework five communicates Plan next Development the a over years, GPA the guide To as an transportation tool. agencies affiliated economic development andmultimodal its and Gary and may be leveraged by the City of both maritimeandnon-maritimeactivity and business enterprise powers, for Buffington governmentalbroadHarbor. GPA has The in infrastructure port based water-just not Gary; of City entirethe the municipal port district, which encompasses encourage port development within the activated andstatutorily authorized to re- was GPA 2017,the In stagnation. port concurrent withthenational periodof being established, the GPA went dormant, However, after Code. “City”) (the Indiana

119 5. WHERE WE ARE NOW GARY/CHICAGO INTERNATIONAL AIRPORT

The Gary/Chicago International Airport is located in the the airport have known environmental contamination or are northwest corner of the city just north of I-90 (Indiana Toll reputed to have environmental contamination (brownfields). Road) and the intersection of SR 912 (see Figure 5-27). Opened Given its proximity to Lake Michigan and the Grand Calumet in 1954, the 663-acre airport is 25 miles from the Chicago River, the area around the airport has a high water table, Loop and often referred to as Chicago’s unofficial 3rd airport existing wetlands, and historic remnants of dune and swale after Midway and O’Hare International. The airport is easily habitat which is highly valued for conservation and protection. accessible by Interstates I-90, I-80/94, I-65, and SR 912 (Cline Ave) and located in the immediate vicinity of three Class I railroad lines and Buffington Harbor on Lake Michigan. The airport is a critical regional transportation asset and an engine for economic growth within Gary and the region.

The airport has undergone significant changes since the development of the 2001 Airport Master Plan and the 2008 City of Gary Comprehensive Plan. The airport has completed over $50M of infrastructure improvements including the long- awaited extension of the main runway in 2015, the construction of a new U.S. Customers and Border Control (CBP) facility in 2018, and various runway and apron rehabilitation projects. The private Fixed Base Operators (FBOs) at the Airport have also invested millions of dollars into their facilities including Gary Jet Center’s $3M Corporate Flight Center completed in 2017. The airport has robust highway access and Airport Road, the primary local route to the airport, has undergone substantial improvements. Extensive rail lines are located immediately to the north.

Existing land uses and environmental constraints around the airport present a challenge for expansion planning. Currently, the airport is surrounded by private landowners some of which have operations that are incompatible with airport operations or complicate airport expansion. Further, many properties around

120 City of Gary Comprehensive Plan Photo Credit:TheChicago Crusader Gary/Chicago International Airport forecast for thenext 20years andalign late 2019). The (expectednew plan Plan will provide Master an aviation its updating The airportiscurrently intheprocess of MASTER PLAN develoment. This concept living issimilarto transit-oriented and clusters. these within improved employment is quality mind, in COD lands abandoned and developing vacant properties with improving By needs. operations together to serve industry by bringingdistribution and industrial to vitality. is increase localemployment opportunities framework COD economic a of purpose generate The and jobs create efficiencies, capture development, freight using on transportation or logistic clusters to spur focuses that TOD) to planning and zoning framework (similar a is (COD) development Cargo-oriented DEVELOPMENT (COD) CARGO-ORIENTED region. and thegreater Chicagometropolitan transportation needsofnorthwest Indiana area facilities to meettheaviation and to terminal and opportunities airfield both outline improve also will Master Plan The stakeholders. key other and airport the administration, operators, of CityofGary, objectives and goals the

121 5. WHERE WE ARE NOW (Reference?_Should we provide alink?). was completed in2010andcan befound at… The Strategic BusinessPlanfor theAirport FIGURE 5-27. AIRPORT AND PORT

Source*: City of Gary * Best available data at time of publication

122 City of Gary Comprehensive Plan KEY TAKEAWAYS • • • • • • port facilities andintermodal/logistics facilities. deep develop and operations, port existing expanding by Harbor casino relocate to legislation operations Harbor provides in Gary an opportunity to redevelop Buffington Enabling Buffington assets. and underutilized are Airport International Gary-Chicago The within Northwest Indiana. limits the ability of Gary residents to access jobs, goods, and services the lackofatrueregional transit system and lackofvehicle ownership is provided by the Gary Public Transportation Corporation. However, Hammond) and (Gary,Merrillville transit regional limited and Local movements dueto theirlow profile. condition and/or impede redevelopment by blocking potential truck are also several abandoned railroad bridges that are in very poor crossings in the City would benefit fromrail safety improvements.Many construct.There and design very to consuming are time projects and expensive These underpass. an developing or the rail or bridging road either involve projects Grade-separation proposed. are more and tracksrailroad at dead-end already streets city Many include safety improvements, crossing closures, or grade separation. crossings at-grade for remedy The mobility. impede and concerns with roadways creating at-grade intersections that posesafety hasanextensiveGary network ofactive rail linesthat intersect “Complete from Streets” redesign and/or Road Diets. benefit would neighborhoods in streets key and corridors city.Major the in facilities bicycleon-street few areThere deferred maintenance anddrainage from issues. suffer sidewalks, including network, street local the of Much rail. mobility are and well accessserved by Regional Interstate and facilities. Highway access port and heavy and transit, airport, rail, roads, hasarobustGary multimodaltransportation network comprised of rni-retd eeomn (O) is a planningandzoning framework that (TOD) development Transit-oriented DEVELOPMENT (TOD) TRANSIT-ORIENTED and private investment. congestion relief andleveraging ofpublic provides opportunitiesfor revitalization, on publicinvestments intransit and growth around transit stations capitalizes people to use the transit system. Focusing on while promoting densitiesto encourage focus access to transit fosters development, projects stations. community context, andconvenient TOD transit Successful around recreational) development (commercial, residential, promotes dense, walkable, mixed-use

123 5. WHERE WE ARE NOW GARY’S TRANSPORTATION NETWORK: WHERE ARE WE HEADED?

Transportation and infrastructure planning, projects, and priorities should align with land use and economic development initiatives. Major improvements should be tied to key corridors, tax, and/or job-generating assets, and improve mobility for people and goods. Significant funding decisions have been made and projects are currently in the queue with both state and federal partners, however the City can continue to look for more opportunities to maximize its transportation assets.

KEY PRIORITIES

1. Focus Investment to Leverage Gary’s Position in the Regional Transportation Network. Targeted investments can take advantage of Gary’s unique link in the regional network. One hundred years ago, the Northwest Indiana Region built around Gary. As a result, all roads lead through Gary (both literally and figuratively). The City can leverage its position to ensure investment continues to be made in Gary as the regional transportation network modernizes. 2. Prioritize Accessibility and Connectivity to Employment. Land use policies and investments should continue to provide the greatest returns on investment. Gary’s public transit should enable connectivity to job centers; bike routes should facilitate alternative methods to access job centers and transit for those residents without a car; land use policies and zoning regulations should facilitate transit-oriented development around Gary’s major transit stops and cargo-oriented development in Buffington Harbor. 3. Modernize the City’s infrastructure to get the Largest Return on Investment. NIRPC’s Complete Streets policy serves as a guide to ensure multiple modes of transportation are considered when new infrastructure is installed or upgraded. This concept can be followed with better coordination between utility providers, the Gary Sanitary District, and the City of Gary. Excess infrastructure can be identified and investments in isolated neighborhoods can be avoided to the benefit of taxpayers as Gary embraces the changes that affect the city’s built footprint. 4. Integrate Infrastructure Data by Utilizing G-STADS. Continue to utilize and invest in the City’s central data system network, shared with the Gary Sanitary District, to better coordinate investments in areas where they make the biggest impacts to the infrastructure system and on residents’ collective quality of life.

124 City of Gary Comprehensive Plan decision-making asitrelates to Gary’s transportation context. The following isalist ofkey indicators that willbeusedgoingforward to understand trends, evaluate progress, andguidefuture KEY INDICATORS • • • Transit Ridership. network. given year. This and funding are the key indicators to track progress in modernizing Gary’s outdated,Completed Projects. yet robust, transportation public investments withprioritiesasarticulated inthisdocument. match to ability City’s the measures This funding. grant and private, federal, state, through projects transportation related Funding. Amount of funding secured and expended for infrastructure, road maintenance, green infrastructure, andother Number ofridersusingGPTC busandBRT service. Projects completed by the Gary Sanitary District, City of Gary, GPTC, or partner organizations in any in organizations partner or GPTC,Gary, of City District, Sanitary Gary the by completed Projects

125 5. WHERE WE ARE NOW 126 City of Gary Comprehensive Plan Project. Italsoincludeskey strategies to promote asafe, healthy, andequitablecommunity for current andfuture residents. Gary Cities 500 CDC the census),decennialand betweenthe Survey dataCommunity socio-economictabulates American (which the Census, U.S. the drawnfrom is Data culture.safety, and gender,ethnicity,health, arts, and and raceeducation, age includes This This section provides a general overview of the current demographic, social, educational, and cultural conditions in the City of Gary. term prosperity. AstheCityevolves, itmust protect andenhance theassets that make itagreat place to live, work, andrecreate. recoverylong- Gary’s toand critical are and priority community a as up consistentlycame jobs accessto and education, health, public safety issues, low workforce participation, low educational attainment, and significant health issues. Improving public safety, As the City’s population and resources have declined,residents have been faced with an increasingly poor quality oflife, including Social Context

127 5. WHERE WE ARE NOW at-a-glance POPULATION OVERGary - TotalTIME Population Over Time 200,000 180,000 160,000 people live in Gary 140,000 77,858 120,000 100,000 80,000 60,000 40,000 20,000 0 1950 1960 1970 1980 1990 2000 2010 2020

RACE / ETHNICITY Gary Lake County Indiana

White (12%) White (55%) White (80%) Black (81%) Black (24%) Black (9%) Hispanic/Latino (6%) Hispanic/Latino (18%) Hispanic/Latino (7%) Asian (<1%) Asian (1%) Asian (2%) Other/2 or More Races (1%) Other/2 or More Races (2%) Other/2 or More Races (2%)

Sources: US Census American Community Survey (ACS) 5-year estimates 2012-2016; Behavioral Risk Factor Surveillance System, CDC 2015, Indiana 128 StateCity ofDepartment Gary Comprehensive of Health, Indiana Plan Mortality Report, State and County Data 2016; Indiana Department of Education, FBI Crime Data Explorer 13,136 ADULTS WITHACOLLEGEDEGREE K-12 SCHOOLENROLLMENT 13% Gary % WITHOUTHEALTHINSURANCE Lake County 12.1%

Indiana down childrenGary enrolled inschool Gary Lake County Asthma ever diagnosedwith percentage adults ofGary

25% from2010 21% in nearby cities charter schoolsor the city’s children attend 1 13% 14% 23% / 2 Indiana 25% (2018/19)

LIFESTYLE HEALTHRISKFACTORS 40% 30% 50% 20% 45% 35% 25% 10% 15% 0% 5% HIGH SCHOOLGRADUATIONRATE 2010 2018 Number ofcrimesper1,00 residents PROPERTY CRIMERATE 2010 70 Obesity 2011 67 .5 Gary 2012 60 .3 Lake County Lake 2013 Indiana 68. Diabetes 9 2014 85.7 Indiana Gary 33 2015 82.1 Physical Inactivity 2016 85.9 from 2010 50% 2017 89.6 66 2018 87 .3

129 5. WHERE WE ARE NOW DEMOGRAPHICS

Understanding Gary’s demographics will help planners, public (see Figure 5-28.). In addition, of the total households in Gary health professionals and city decision makers plan for change, with children under 18, approximately 6,000 or 57 percent are and target appropriate programs and services. Information headed by single parents, making access to childcare and after on age and sex of a population are important because people school programs a high priority. of different ages and gender have different health needs. For example, women of child-bearing age may have specific In 2000, according to the U.S. Census the City of Gary’s largest maternal health needs, while senior adults are considered more household segment was the “baby boomer” generation, or vulnerable and may have more chronic health issues. those born between 1946 and 1964. Gary’s aging population will continue to grow as other segments decline, as “boomers” Race and ethnicity also play a role in determining health age in place, younger residents move away, and the pace of outcomes due to various distinct social, economic, and new residents moving in continues to slow. environmental factors. Knowing the racial composition of a community can provide context about culturally-appropriate FIGURE 5-28. AGE OF POPULATION solutions. Current population demographics are compared Age Distribution to past numbers, as well as comparisons to Indiana and Lake County to give perspective on the contrast between Gary and 70% the neighboring region. 60%

Although Gary has seen significant population decline over the 50% last 50 years, the rate of decline is slowing and the population 40% seems to be stabilizing. Between 2010 and 2016, the total population declined by about three percent, as compared to 30% a 22 percent population decline between 2000 and 2010. The 20% current population of Gary is just under 80,000 people. 10% Gary is a predominately African-American community. The 0% majority of the population, 81 percent, identifies as Black, compared to 24 percent for Lake County and nine percent for Under 18 18-64 65 and over Indiana. Gary Lake County Indiana

The population of Gary contains a greater percentage of Source: 2012-2016 American Community Survey 5-Year Estimates both younger (under 18) and older residents (over 65) than the county and state. Paralleling national trends, the city has seen a shift in age distribution in recent years, with working age residents leaving Gary, and older residents aging in place

130 City of Gary Comprehensive Plan Source*: U.S.Census BureauAmericanCommunity Survey(ACS) FIGURE 5-29. POPULATION DENSITY * Bestavailable dataattimeofpublication

131 5. WHERE WE ARE NOW FIGURE 5-30. PERCENT POPULATION CHANGE 2011-2016

Source*: U.S. Census Bureau American Community Survey (ACS) * Best available data at time of publication

132 City of Gary Comprehensive Plan Source: 2012-2016 AmericanCommunitySurvey 5-YearEstimates FIGURE 5-31. EDUCATIONAL ATTAINMENT disadvantage whencompeting for jobsintheregion. significant a athigher.residents or degreeGary bachelors puts Thisa holding is even higherintheChicagometro area, with 37 percent ofthepopulation County, the attainmentstate. Educational the percentfor 25 and CountyLake percentfor behind lag Gary the population withacollege degree isonly13percent ascompared to 21 of in percentage the 5-31, Figure in shown As levelsstate. and region, metro Chicago attainment educational Overall Figure 5-4shows theactive andinactive schoolswithinthecity. without a public middle school since Williams Annex closed in Decemberbeen 2016. has Gary and 2018, and 2008 between schools of number a closed has (GCSC)Corporation School Community low. Gary remains district in school However,the confidence district. the to back students attracting of hopes in Gary debts its the tackling and improving academics run buildings, fixing — district to school team management emergency an tasked State the 2017 In schools in adjacent cities. Access to quality education remains an issue in Gary. nearly halfthecity’s children attend charter schools,whileothersattend 2018- Education 2019), compared of to 17,518 Department in Indiana 2010 (ACS 2010 - 5-year EnrollmentEstimates). Of School that number, (K-12 students 13,136 approximately was 2018-2019 for enrollment school K-12 The Gary. in As theoverall population ofthecityhasdeclined,soschoolenrollment EDUCATION ANDINCOME 40% 30% 20% 35% 25% 10% 15% 0% 5% Lessthan high graduate school High school Educational Attainment Educational graduate Gary Lake County Lake Some college Some Indiana Bachelor's degree Post-grad degree better healthoutcomes. levels of nutrition and physical fitness, and associated withincreased income, higher Increased levels ofeducation have been

133 5. WHERE WE ARE NOW A family of two college graduates earns on average over FIGURE 5-32. MODIFIABLE LIFESTYLE HEALTH $30,000 more than a family of two high school graduates. RISK FACTORS Household median income in Gary is approximately $28,895, approximately half that of Lake County. This is further 50% compounded by the fact that median household income in 45% Gary has fallen by 26 percent since 1999. 40%

Poverty and income are strongly associated with a person’s 35% health. Mortality and morbidity rates typically increase for people 30% with lower incomes, creating health disparities. Likewise, poor 25% health can contribute to reduced income, limiting workforce participation and contributing to the phenomena known as the 20%

“poverty-trap.” As income inequity continues to grow, it is likely 15% that health disparities will also increase over time. 10%

5%

COMMUNITY HEALTH 0% Obesity Diabetes Physical Inactivity A community’s overall health depends on many factors. Eating Gary Lake County Indiana well, staying active, and seeing a doctor all influence health. Source: Behavioral Risk Factor Surveillance System, CDC 2015 Health, however, is also influenced by access to social and economic opportunities, the quality of education, neighborhood conditions, workplace safety, and the cleanliness of water and Quality of life in Gary is dramatically impacted by public health air, among others. These conditions influence why some people factors. Gary ranks high in modifiable lifestyle health risk factors are healthier than others, and why where people live and work such as obesity, diabetes, and physical inactivity, particularly matter to community health. when compared to rates for the County and state (see Figure 5-32). The top three causes of death – chronic lower respiratory disease heart disease, and stroke – have some of the same Measures of health status provide information on the health- risk factors, including poor diet and lack of physical activity. related quality of life for Gary residents. Self-perceived health Better access to nutritious food and more opportunities for status is a measure of how a person perceives his or her health physical activity could reduce Gary residents’ vulnerability to and is a useful indicator of health, allowing comparisons across these diseases. Poverty, low levels of education, and lack of different populations and geographies. Individuals may choose access to health care may also contribute to these causes of excellent, very good, good, fair, or poor when responding to death. Unfortunately, a significant number of Gary residents, this survey question. Figure 5-33 shows the proportion of approximately 26 percent, are uninsured, which further adults over age 18 who report poor physical health. The map contributes to poor health outcomes in the city. illustrates significant differences across the city in terms of reported health status.

134 City of Gary Comprehensive Plan Source*: CDC500CitiesProject FIGURE 5-33. PROPORTION OFGARY RESIDENTS WHOREPORT POORPHYSICAL HEALTH * Bestavailabledataattimeofpublication

135 5. WHERE WE ARE NOW ENVIRONMENTAL HEALTH

Environmental health covers a wide range of topics that include the physical, chemical, and biological factors external to a person that impact overall human health. The subject includes air pollution, the quality of drinking water, exposure to chemicals in building and cleaning materials, exposure to soils containing toxic substances, and other similar exposures. Understanding environmental health conditions is a complex problem. There are tens of thousands of substances in our environment. Some of these substances may be harmless, while others are highly toxic; some may cause short-term health issues while exposure to others may cause long-term, chronic health impacts that could lead to death.

High concentrations of heavy manufacturing uses combined with heavy traffic on I-90, I-80, I-94, and I-65 contribute to poor air quality days, which can result in respiratory illness, chronic obstructive pulmonary disease, and cancer. Fine particulate matter can cause asthma attacks in children, in addition to impaired lung function, premature death and death from cardiovascular diseases, and cardiovascular morbidity. While children, youth, and the elderly are among the most vulnerable, all community members are at risk. Figure 5-34 Air pollution from heavy industry shows percentage of days over national air quality standards for fine particulate matter in Gary.

Gary residents, as well as Lake County residents, also suffer from high rates of asthma. Asthma is a chronic lung disease that includes inflammation and intermittent narrowing of the airways. Asthma can cause repeated episodes of wheezing, chest tightness, shortness of breath, and coughing. Asthma attacks are triggered by a number of factors, including smog, dust, pollen, and smoke. Over 12 percent of adults in Gary are asthma sufferer with significant differences by neighborhood in the city (Figure 5-35).

136 City of Gary Comprehensive Plan Source*: CDC500CitiesProject (PM 2.5) FIGURE 5-34. PERCENTAGE OFDAYS OVER AIRQUALITY STANDARDS FOR FINEPARTICULATE MATTER * Bestavailabledataattimeofpublication

137 5. WHERE WE ARE NOW FIGURE 5-35. PERCENTAGE OF RESIDENTS WITH ASTHMA

Source*: CDC 500 Cities Project * Best available data at time of publication

138 City of Gary Comprehensive Plan and transformation ofGary’s neighborhoods. strategies will be fundamental to the long-term stabilization safety community-led and innovative Implementing funding. help collectively address publicsafety concerns and pursue to advocates community with collaborate to and responders fire, first police, Gary for need the life. and training of safety public quality from detract In particular, the community proposed a greater and focus on perceptions, negative to property, Vacant investment. and blight, anddeteriorating infrastructure conditions contribute growth attract to ability Gary for as crimeitself, issue impactingresidents, businesses, andtheCity’s an of much as just is crime of perception The 2007. since cases reported in decrease significant a haveseen crime violent and crime Property dropping. consistently been concern, even thoughviolentcrimerates intheCityhave In conversations residents, withGary publicsafety isaprimary impacts ontheneighborhoodandcommunity. implications for victimsandtheirfamilies, resulting innegative and perceived crime can have health, social, and behavioral Real cohesion. social and businesses, health, individual impact also can crime of perception The activities. family and youth underemployment, thepresence ofgangs,racism, andlackof A variety offactors canimpactcommunity safety, including CRIME ANDSAFETY

139 5. WHERE WE ARE NOW FIGURE 5-36. TOTAL VIOLENT CRIMES REPORTED AND CLEARED (2007-2017)

Source: FBI Crime Data Explorer, Gary Police Department Reported Property Crimes (2007-2017).

140 City of Gary Comprehensive Plan Source: FBICrimeDataExplorer,GaryPoliceDepartment ReportedPropertyCrimes(2007-2017). FIGURE 5-37. TOTAL PROPERTY CRIMESREPORTED ANDCLEARED(2007-2017)

141 5. WHERE WE ARE NOW FOOD ACCESS

Healthy communities provide access to affordable and healthy “Food access” is based on physical access to a food store food at grocery stores, produce markets, community gardens, (e.g., supermarket, large grocery store, etc.). While various and farmers’ markets. Residents of communities with access food stores exist in Gary, food access is limited across the city. to a full-service grocery store tend to eat more fruits and Much of Gary, including the entire western side of the city, is vegetables, have lower body weights, and lower rates of chronic considered a food desert with limited access to retail food diseases. Local food production can also reduce the distance outlets, and every census tract in the city except one either has food is shipped, lowering the environmental footprint of food low, poor, or no access to healthy retailers. Food deserts are production and distribution. areas that lack access to affordable fruits, vegetables, whole grains, low-fat milk, and other foods that make up a full and healthy diet as shown in Figure 5-38.

FIGURE 5-38. FOOD DESERTS

Source*: CDC 500 Cities Project * Best available data at time of publication

142 City of Gary Comprehensive Plan the 2018Gary PoetryProject and projects art numerous of subject - Building Water Light Heat Gary Former conceptual design from world-renowned Chicago-based artist Theaster Gates. a on based Foundation, Knight and PhilanthropiesBloomberg by funded was shaped by CBI participants and gallery/exhibition space. The ArtHouse project incubation program (CBI), rental space for events and meetings, a pop up café commercial a to access provides kitchen rental for local residents It and emerging businesses, a culinary business area. Downtown the in activity artistic the that space in and economic a for platform provides a and Gary opened creating of City the reflects positively on art, focused is and and culture, 2017, in food, neighborhood Downtown for destination unique a ArtHouse, jobs. These districts andfacilities helpcreate Northwest. strong neighborhoodswhilecreating local Theatre the as such theatres and District, Creative & Arts Beach Miller the galleries, boasts city economy.The local the to contributors Arts andculture are key elementsofacommunity’s qualityoflife and ARTS ANDCULTURE efforts. for section Environment more information on historic preservation Built the See

143 5. WHERE WE ARE NOW The ArtHouse collaboration with Theaster Gates in 2015 sparked an interest in public art in Downtown Gary. Over the last several years, several artists and community groups have painted, performed, or installed artwork in the Downtown neighborhood. In the summer of 2018, #PAINTGARY transformed vacant lots and wall surfaces of primarily abandoned buildings along the Broadway corridor into a series of creative sculptures and murals. Decay Devils, a community group focused on historic preservation and urban exploration, have turned the historic Union Station, previously abandoned, into a vibrant public space, and are expanding their placemaking and community building efforts further Downtown through collaborations with the Legacy Foundation, Knight Foundation, and Gary Public Transit Corporation.

Historic resources also play an important role in the community. As mentioned in the Built Environment section, Gary has two historic districts and eight properties listed on the National ArtHouse Register of Historic Places, however many historic properties have suffered from decades of neglect and fallen into disrepair. The City is exploring creative means to preserve architecturally and culturally significant buildings that still remain, such as the City Methodist Church and the former Gary Post Office. The Gary Preservation Tour, started in 2017, is an annual event that highlights Gary’s architecturally significant sites. The tour has helped to generate interest in historic and cultural preservation.

Union Station

144 City of Gary Comprehensive Plan KEY TAKEAWAYS

• Total population levels within the city seem to be stabilizing around 75,000-80,000 residents. The city has above average youth and senior populations. • Of the total households in Gary with children under 18, approximately 6,000 or 57 percent are headed by single parents, making access to childcare and after school programs a high priority. • The city has a low rate of educational attainment, which significantly impacts wealth and income. Lower incomes are linked to disparities in health outcomes. • High concentrations of heavy manufacturing uses combined with heavy traffic on I-90, I-80, I-94, and I-65 contribute to poor air quality days, which can result in respiratory illness, chronic obstructive pulmonary disease, and cancer. • Property crime and violent crime have seen a significant decrease in reported cases since 2007. The perception of crime is just as much of an issue for Gary as crime itself, impacting residents, businesses, and the city’s ability to attract growth and investment. Vacant property, blight, and deteriorating infrastructure conditions contribute to negative perceptions, and detract from quality of life. • Much of Gary, including the entire western side of the city, is considered a food desert with limited access to retail food outlets, and every census tract in the city except one either has low, poor, or no access to healthy retailers. • The City’s arts and cultural events (e.g., #PAINTGARY and Gary Preservation Tour) and facilities (e.g. ArtHouse) help create strong neighborhoods while creating local jobs.

145 GARY’S SOCIAL CONTEXT: WHERE ARE WE HEADED?

What makes Gary unique and special is its residents. The City must continue working to stabilize the population and build the education and wealth of Gary residents.

KEY PRIORITIES

1. Grow Gary’s Population. A growing city reflects a healthy economy, vibrant community, and high quality of life. The city has a talented community, boundless opportunities, and momentum, a key recipe to encourage and foster population growth. 2. Build Generational Wealth. The City will foster wealth building from within, through education, knowledge exchanges, supporting talent, and creating opportunities that build on Gary’s existing community without displacing it. 3. Increase Educational Opportunity and Job Training. Improving access to quality public education, training, and affordable childcare is critical to retain and attract new residents to the city and advance workforce preparedness and employment opportunities for the community. Through partnerships, strategic and coordinated investments, creative land use, and citizen- led efforts, the City can improve education and employment outcomes for residents. 4. Use Land Use Policy and Zoning to Improve Community Health. Land use policy and zoning should be used to create better health outcomes by minimizing conflicts between the city’s heavy manufacturing and logistics industries and residential neighborhoods. 5. Maintain Arts and Culture Momentum. The arts and culture ecosystem is flourishing in Gary. Leverage outside interest and investment in the city’s creative economy.

KEY INDICATORS

The following is a list of key indicators that will be used going forward to understand trends, evaluate progress, and guide future decision-making as it relates to Gary’s social context.

• Population. This measure shows how the city is changing over time and whether the overall population is stabilizing and/or growing. • High School Graduation Rate. This measure tracks the rate at which Gary students graduate from high school, a good indicator of potential and future earning potential. • Property Crime Rate. This measure tracks the frequency of property crimes, a key indicator of quality of life.

146 City of Gary Comprehensive Plan 147 5. WHERE WE ARE NOW