PREFACE. City of Greensburg Comprehensive Plan

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1 PREFACE Forward Change is a reality in our communities. It may occur slowly, over time, or faster than we seemingly can adjust to. We can react to change or to anticipate and direct the changes that occur. When communities engage in a comprehensive planning process they are both responding to changes that have happened or are happening, and planning for changes that will likely occur in the future. Greensburg has recently experienced the beginning of a significant change in the community with the announcement that Honda will be building a major manufacturing operation just outside of the city. The new plant will bring jobs to the community and could bring more manufacturing, distribution, retail, and office development to the city in addition to residential growth. An agreement has been reached which will allow the City to annex the Honda site in phases. Annexation of the facility will provide the City with additional financial resources and added responsibility to provide public services to the plant. This plan accounts for the changes that are occurring in the community while planning for the changes that will occur in the community over the next twenty years. Indiana statutes establish the minimum requirements for a comprehensive plan. As stated in IC , a comprehensive plan must contain at least: 1. A statement of objectives for the future development of the jurisdiction; 2. A statement of policy for the land use development of the jurisdiction; 3. A statement of policy for the development of public ways, public places, public lands, public structures, and public utilities. This comprehensive planning process has been concurrent with a similar comprehensive planning process for Decatur County. In the beginning the two processes were parallel, with joint Steering Committee meetings for both plans. The plans are integrated with one another as the committees have worked together. This comprehensive plan addresses these elements in Part II: Policy Plan through the land use plan, transportation plan, sub-area plans, and issue specific plans. Each of these plan chapters includes policy statements in the form of goals and objectives. Framework The framework of this comprehensive plan is formed around four key questions that the plan both asks and attempts to answer. These questions are: Where are we now? Page 1

2 Where are we going? Where do we want to go? How do we get there? The question of Where are we now? is addressed in Part I: Context which includes the history and setting of the community, local dynamics, a demographic and economic profile, physical analysis, and key issues. The responses to this question are descriptive and based on published data and observed characteristics. Where are we going? is the question we must answer to determine the current path we are taking. This path is the likely outcome for the future of the community if no changes are made to current policy or programming. The size of the future population, the amount of new development required to serve that population, and the location of new development based on current trends are some indicators that determine the response to this question. We ask, Where do we want to go? to identify the desired community characteristics for the future. Responses to this question are a result of input from the public, the plan s steering committee, a focus group, and key stakeholders. The response takes the form of land use scenarios, a vision statement, goals, objectives, and planning principles which verbally and graphically depict the desired future for Greensburg. Finally, responses to How do we get there? provide the community with tools to implement the comprehensive plan and shape the community in a way that is consistent with the desired vision of the future. They include action steps, timeframes, potential funding sources, responsible parties, and other details that will assist the community achieve its vision, How to use this Document Part I: Context Describes the existing conditions of the community, both in terms of demographic and economic analysis and through observation and input from key stakeholders. This part answers the questions where are we now? and Where are we going? Part II: Policy Plan Establishes the vision for the community, and lays out goals and policies for land use (Chapter 3), transportation (Chapter 4), sub-areas such as downtown and the I-74/US 421 interchange, and specific issues such as corridors and an agricultural business park. Part II poses and answers the question, Where do we want to go? Part III: Implementation Provides a blueprint for implementing the plan including action steps, suggested revisions to ordinances, new and modified programs, potential funding sources, etc. This part answers the question, How do we get there? Page 2

3 Part IV: Context Report Summarizes the public participation responses that were received from the public, key person interviews, focus group meetings, and the steering committee throughout the planning process. Definitions There are some key terms that are used in the document that are important to understand in order to effectively use the document. Action plans: Specific steps to be taken to implement objectives and goals if the vision is to be achieved. Goal: A broad statement that supports the vision while adding a specific area of focus. It should be lofty, but attainable within the planning horizon. Key person/stakeholder: An individual who is in some way responsible for implementing the plan or has a vested interest in the outcome of the plan, whose input should be considered early in the planning process. Objective: A statement that adds a level of specificity to the goal, without identifying the individual actions that must be taken for implementation. Objectives are generally measurable so that the community can monitor implementation progress. Planning Horizon: The period of time considered by the plan; a comprehensive plan generally considers a twenty-year period. Review is recommended every five years or as conditions change. Policy: A definite course or method of action to guide present and future decisions. Policies may be legislative or administrative in nature. Steering Committee: The group of people, assigned by the Plan Commission, to represent the community and guide the comprehensive planning process. The Steering Committee members serve as a liaison between the community and the consultant during the planning process. Vision: A broad statement describing the desired future of the city, as shared by members of the community. Page 3

4 Table of Contents Preface Forward...1 Framework...1 How to Use this Document...2 Table of Contents...4 Acknowledgements...7 Part 1: Context Chapter 1: Setting the Context History Local Dynamics Chapter 2: Research and Analysis Introduction Demographic and Economic Profile Physical Analysis Maps Key Issues Part 2: Policy Plan Chapter 3: Vision, Goals, and Planning Principles Introduction Vision Statement Goals Planning Principles Chapter 4: Land Use Introduction Growth Management Goals and Objectives Scenarios Type, Quantity, and Quality of Development Location Criteria Future Land Use Map Chapter 5: Transportation Introduction Transportation Goals and Objectives Functional Classification Thoroughfare Plan/Functional Classification Map Page 4

5 Chapter 6: Public Facilities Introduction Public Facilities Goals and Objectives Public Facilities Map Chapter 7: Special Study Areas Introduction Downtown Information I-74/US 421 Interchange Information Recommended Development Pattern Chapter 8: Special Topics Introduction Annexation Types of Annexation Purposes of Annexation Annexation Recommendations Infill Development Why Infill is Important Brownfield Development Corridors Corridor Planning Key Corridors for Greensburg Lincoln Street Enhancements Agricultural Business Park Agriculture as Industry Models of Agricultural Business Parks Part 3: Implementation Chapter 9: Implementation Introduction Action Plan: Land Use Action Plan: Transportation Action Plan: Public Facilities Programs and Tools Page 5

6 Part 4: Context Report Chapter 10: Public Participation Introduction Key Person Interviews Focus Group Meetings Steering Committee Public Workshops Page 6

7 Acknowledgements Honorable Frank Manus, Mayor, City of Greensburg Greensburg City Council Larry Bower Ken Dornich Helen Gardner Gary Herbert Glen Tebbe Greensburg Plan Commission Larry Bower Dan Manus Roy Middendorf Lynne Wells Tom Hunter Gary Herbert Glen Tebbe Kathy Reynolds, Plan Director Steering Committee Members Kathy Reynolds Larry Bower Tom Hunter Gary Herbert Vicki Kellerman Roy Middendorf Bryan Robbins Jennifer Sturges Scott Chasteen Bill Meyerrose John Tumilty Consultant Team HNTB Corporation 111 Monument Circle, Suite 1200 Indianapolis, IN Page 7

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9 CHAPTER 1 CONTEXT History The site for the county seat of Decatur County was chosen in June 1822 and named Greensburg in honor of the Pennsylvania community of origin for the city s founder Thomas Hendricks wife. In 1823, a county jail was the first government structure built in the community. It was located on the southeast corner of the courtyard. The oldest part of the current courthouse structure was first constructed in The courthouse was renovated and expanded in the late 1990s, and completed in The courthouse Tower Tree has long been the best known feature of Greensburg. In the early 1870s the tower tree began as a small sprig growing from the northwest corner of the courthouse roof. The sprig grew into several trees. In 1888 some of the shrubs were removed. The remaining tree grew to approximately 15 feet before it died. It remains at the Decatur County Historical Society. Another tree made an appearance at the southeast corner of the courthouse tower during that time. The Tower Tree has become a famous landmark, the symbol of Greensburg, and is promoted as a tourist attraction. A Carnegie library opened in the community in 1905 at the site of the Watson Foundry. The library moved to a larger facility on East Main Street in Following the library s move, the city offices were located in the building until 2006 when the city government offices moved to a renovated elementary school on West Washington Street. State Road 3 was built in This highway connects Greensburg with Muncie and Ft. Wayne to the north and the Indiana suburbs of Louisville, Kentucky to the south. Interstate 74 was completed through Decatur County in The interstate became the primary means of transportation between Indianapolis and Cincinnati and points beyond. During the early 1900s, the Interurban, operated by the Indianapolis and Cincinnati Traction Company, provided rail service between Indianapolis and Cincinnati. The trains were replaced with busses in A connecting bus service existed between Greensburg and Cincinnati, and a through route between Indianapolis and Cincinnati evolved. Bus service continued into the 1980s. Local Dynamics Greensburg is an incorporated city with a five member city council and a mayor. Four of the five council members are elected from districts, while one is elected at-large. The Greensburg Community School Corporation serves Greensburg. The school district has an elementary school, the Greensburg Community Junior High School, and Greensburg Community High School. The junior Page 1-1

10 high building was originally the high school when it opened in The high school opened in 1971 and underwent significant renovations in The city is home to one parochial school, St. Mary s which serves Pre-K through sixth grade. In 2004, the Greensburg Community Learning Center opened. A variety of post-secondary classes are offered at the Learning Center. In June 2006, Honda Manufacturing of Indiana announced that Greensburg would be the location for the company s new plant, a $500 million investment that is projected to create 2,000 jobs. The company is locating the plant along I-74, just outside the northwest side of the city. The city and Honda have reached an agreement for annexation of the property over a period of time. This will bring the factory into the city s jurisdiction for both tax base and future expansions or site development. As a part of the Governor s Major Moves initiative, I-74 through Decatur County will experience major road enhancement and preservation projects. These two projects will affect I-74 from Newpoint to Penntown and from the Shelby County line to SR 3. Other major transportation improvement projects from INDOT include: Reconstruction of US421/Old 421 Reconstruction of the I-74/US 421 interchange Realignment of CR 300N Reconstruction and extension of CR 250W New construction of an overpass road Water supply is currently an issue in Greensburg and Decatur County. Decatur County Rural Water purchases their water supply from the City of Greensburg. In late 2006, Rural Water began denying new water permits in Zone 5 (near the new Honda plant) based on their contractual limit with the City of Greensburg. The issue is in the process of being resolved, but raises questions about the control of water delivery in the areas immediately adjacent to the City of Greensburg. The railroads have been historically significant to the Greensburg economy and will continue to be important as Honda begins operations. One of the challenges associated with the railroads is the number of atgrade crossings. These crossings can create access problems for emergency equipment when trains block intersections. The crossings can also create traffic congestion when there is train activity during peak traffic times. At grade crossings also pose potential safety hazards for pedestrians and motorists. Relocation of the Decatur County Airport has been a long-discussed project in the area. In 2006, the Decatur County Council failed to support the expansion project and the City of Greensburg decided to take on the airport expansion as a city project. The Decatur County Council relinquished control of their portion of the airport, enabling the city to proceed with the project. Page 1-2

11 Another long-considered project in Greensburg has been the improvement of Lincoln Street. The project is expected to begin in 2008 and be completed in The newly constructed portion of the road, from First Street to the bypass, will enhance the gateways to the community and make the area more accessible and desirable as a business address. Downtown continues to be the heart of Greensburg and Decatur County. The downtown area is focused on the courthouse square and surrounding blocks. Two downtown organizations have emerged to address the continued vitality of the downtown. Page 1-3

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13 CHAPTER 2 RESEARCH AND ANALYSIS Introduction The physical data, along with public input, forms the basis for decisionmaking in the comprehensive planning process. This information attempts to answer the questions Where are we now? and to a more limited extent, Where are we going? The primary source of the data below is the 2000 US Census of Population and Housing. Whenever more current estimates are available, the estimates from the US Census Bureau and the Indiana Business Research Center are used. Greensburg is projected to grow steadily Growth Trends Key The estimated 2005 population of the City of Greensburg was 10,536. This is an increase of nearly three percent over the 2000 population. This rate of population growth is consistent with the statewide growth rate. Between 1990 and 2000, Greensburg grew more than 10 percent, while the county population grew less than four percent. Two potential explanations for this are annexation of population into Greensburg that was previously unincorporated and increased interest in living in the City due to availability or affordability of housing. Figure Decennial Census Population ,000 25,000 20,000 15,000 10,000 5, Decatur County Greensburg Source: Indiana Business Research Center Page 2-1

14 Figure Annual Population Estimates Annual Population Estimates ,000 25,000 20,000 15,000 10,000 5,000 24,572 10,250 25,184 10, Decatur Co. Greensburg Source: Indiana Business Research Center Population projections for Greensburg are both incredibly problematic and incredibly important. They are important to understand the potential impacts of growth related to the development of the Honda plant. Accurate projections are problematic because the official statistics from the Census only reflect births, deaths, and migration based on historical trend and are not reported for cities and towns. They are unable to account for major changes in industry or other factors that affect population. Historical trends are one way to project population figures into the future, this method is shown in Figure 2.3. Another method that attempts to account for the population growth due to Honda is shown in Figure 2.4. According to the long-term trends model, the population of Greensburg is projected to grow steadily. The Census Bureau and the Indiana Business Research Center do not produce population projections for cities and towns. However, projections can be developed based on short-term and long-term trends. These projections do not account for any growth due to the Honda plant, they are a baseline projection of what the population may be without Honda. The long-term trend places the 2030 population for the City at 10,500, an increase of approximately 250 over the 2005 population. Page 2-2

15 Figure Population Projection Long-Term Trend (Linear) Greensburg Long-term Trend Linear Projection 12,000 10,000 8,000 6,000 4,000 2, Source: HNTB The second method used attempts to reflect the population growth potential from Honda using the impact rate from communities that have had similar experiences. The early analysis included Marysville, Ohio (Honda plant), Georgetown, Kentucky (Toyota plant), and Princeton, Indiana (Toyota plant). Marysville s growth was not used for the final projections because data was not available on an annual basis far enough back to determine their baseline growth. Princeton experienced very little growth, as most of their growth was directed toward the Evansville metro area. Georgetown, Kentucky provides the best example for Greensburg in terms of location characteristics and likely growth. Georgetown s population growth rate based on the impact of the Toyota plant (growth above their baseline rate ) was added to Greensburg s projected baseline rate to determine an impact rate of growth and ultimately population projections for several years extending to The projected population for Greensburg in 2030 using this method is 18,295. The projection is shown in Figure 2.4. Page 2-3

16 Figure Population Projections with Honda Impact - Aggressive Population Projections ,000 50,000 51,646 40,000 30,000 20,000 10,000 25,184 10,536 18, Greensburg Decatur County Source: HNTB Population Characteristics Key population characteristics include: An older population that could signal the need for different housing types, such as townhouses, condominiums, and active elderly communities. Asians are the only significant minority in Greensburg and their population may increase. More diverse dining, shopping, and educational opportunities may be needed to meet the needs of this population. The educational gap is increasing between Greensburg and out of state comparison communities. Age Approximately half of the Greensburg population is working age (young adults and older adults). This is similar to the statewide average. The city s population over age 65 is higher than the statewide percentage and much of the older population is female. This could signal a need for new housing types that meet the needs of an older population, particularly as the Baby Boom generation ages. Page 2-4

17 Figure Functional Age Groups Greensburg Functional Age Groups % Under 5 8% 5 to 24 27% 25 to 64 49% Source: Indiana Business Research Center Figure Population Distribution Population Distribution - Greensburg 80 to 84 y ears 70 to 74 y ears 60 to 64 y ears 50 to 54 y ears 40 to 44 y ears 30 to 34 y ears 20 to 24 y ears 10 to 14 y ears 0 to 4 y ears Males Females Source: Indiana Business Research Center and HNTB Page 2-5

18 Race The city is predominately Caucasian, but there is an Asian population of over 300. The growing Asian population may create demand for more diverse shopping and dining opportunities as well as expanded educational opportunities. Other minorities are not well represented in Greensburg. Educational Attainment High school diploma attainment and attainment of a college degree is generally lower in Greensburg than the state average. The education gap is widening in Greensburg. While educational attainment has risen since 1990, the city s educational attainment has not kept pace with improvements in other communities, resulting in the city s declining ranking. Approximately 12 percent of Greensburg adults had completed a Bachelor s degree or higher by the 2000 Census. An argument can be made that lower educational attainment tends to attract jobs that require lower skilled workers. The availability of lower skilled jobs does not provide an incentive to pursue higher education. Another argument can be made that the presence of Honda will attract more educated workers to the community and that educational attainment will rise rapidly in the next few years. This may create additional demand for adult education/workforce development opportunities in the community. Figure Educational Attainment Educational Attainment Adults over Age 25 (%) Decatur County HS Diploma+ Decatur County Bachelors Degree+ Greensburg HS Diploma+ Greensburg Bachelors Degree+ Source: Indiana Business Research Center Page 2-6

19 Housing Key housing characteristics include: Older housing is attractive from one market perspective for its architecture and character, but may present challenges like outdated utilities, leaking roofs, and lack of energy efficiency. The older housing stock may require programs to encourage maintenance, restoration, and repair. Lower median home values indicate more affordable housing, but age and quality can also contribute to lower home values. An increasing percentage of rental units indicates greater housing diversity, but may be an indicator of problems with foreclosure. The 2000 Census, indicates nearly 4,500 housing units in Greensburg, a 23 percent increase over the 1990 Census. Most of the housing growth occurred in single family attached and multi-family housing units. This indicates growing demand for lower maintenance or more affordable housing. More than one-quarter of the homes in Greensburg were built prior to 1940 Age of Housing More than one-quarter of the homes in Greensburg were built prior to Older housing can be attractive for the quality of architecture and character, but may depress housing value because many older homes are in need of utility upgrades or lack desirable features such as large kitchens. Approximately 20 percent of housing units were built during the 1960s and 1970s. Generally housing needs to be renovated or replaced after a 30 year period. Only 37 percent of the housing in Greensburg was built after 1970, less than Decatur County (41 percent) or the state (45 percent). This could indicate maintenance concerns for older homes where renovations have not taken place. Older neighborhoods Page 2-7

20 Figure Age of Housing Units Age of Housing Units 35% 30% 25% 20% 15% 10% 5% 0% 1939 or earlier March 2000 Indiana Decatur Co. Greensburg Source: Indiana Business Research Center Home Value The median home value in Greensburg was $85,100 in 2000, compared to $94,300 statewide. While lower median values make housing more affordable, they can also reflect a housing market that is less desirable than other areas in the state. The Honda announcement has driven home prices up temporarily. A March 27, 2007 Indianapolis Star article reported that the median sales price for February 2006 in Decatur County was $129,900. This figure includes only homes in Decatur County that were on the market and sold during that month. The 2000 median home value in Decatur County was $86,400. Figure Median Home Value Median Home Value $100,000 $90,000 $80,000 $70,000 $60,000 $50,000 $40,000 $30,000 $20,000 $10,000 $0 Indiana Decatur Co. Greensburg Milford Millhousen Newpoint St. Paul Westport Source: Indiana Business Research Center Tenure Home ownership is weaker in Greensburg than in the county or statewide; 63 percent of homes are owner-occupied, compared to 71 percent statewide. Indiana is a strong home-ownership state ranking Page 2-8

21 12 th nationally. Greensburg had the highest percentage of rental units in the county, 37 percent, compared to 27 percent in Decatur County and 29 percent statewide. Rental units provide flexible, generally affordable, housing options for young people and families, for working class families, and for older adults. Rental housing is also more desirable for a mobile workforce, a growing trend in today s economy. Declining homeownership locally from 1990 to 2000 could indicate that many people experienced problems with maintaining a home or mortgage payments. Figure Housing Tenure Housing Tenure 80% 70% 60% 50% 40% 30% 20% 10% 0% Indiana Decatur Co. Greensburg Owner Renter Source: Indiana Business Research Center Income Key income characteristics include: Lower median household incomes than the state or nation mean less spending power for goods and services Income disparity across the communities in the county can create areas that have problems associated with lower income levels. The median household income in Greensburg in 1999 (2000 Census) was nine percent lower than the statewide average. The city median household income was $38,029. Since median household income in Indiana is below the national average, this means the spending power of Greensburg residents is somewhat lower than the national average. Lower incomes and lower home values are related as housing is the single largest expense for the typical household. Lower incomes also mean lower spending on vehicles, travel, and high value consumer items. Page 2-9

22 Figure Median Household Income Median Household Income $45,000 $40,000 $35,000 $30,000 $25,000 $20,000 $15,000 $10,000 $5,000 $0 Indiana Decatur County Greensburg city Milford town Millhousen town Newport town St. Paul town Westport town Source: Indiana Business Research Center Comparison Communities Key characteristics of Greensburg relative to comparison communities include: Slower population growth than out of state communities, however growth may increase dramatically when Honda opens for business A larger Asian population than comparison communities which provides local diversity, growth in the Hispanic population could be the next change in diversity locally. Older housing stock than most comparison communities, however growth in residential construction could improve the community s balance between old and new housing stock. Lower median home values than comparison communities exist currently, but would likely change with new residential construction. Several communities were chosen as comparison communities for Greensburg to provide perspective. Comparison communities include Georgetown (KY) which has a Toyota factory, interstate access, and is a county seat; Marysville (OH) which has a Honda factory; Princeton (IN) which has a Toyota factory in a more rural community; and, Martinsville (IN) which has Harman-Becker (an automotive supplier) and a similar sized population. The Toyota plant in Georgetown opened in 1986, while the Princeton plant opened in The Marysville Honda plant opened in Page 2-10

23 Population Greensburg grew 10 percent from 1990 to 2000, during that same period, Marysville, OH and Georgetown, KY grew 65 percent and 58 percent respectively the highest growth among comparison communities. Marysville and Georgetown continued to grow the most of comparison communities between 2000 and 2005, growing 7.7 and 9 percent respectively while Greensburg grew 2.8 percent during that period. Greensburg has the largest Asian population among the comparison communities. Greensburg also saw the most significant increase in Asian population between 1990 and 2000, although Census race data are not exactly comparable from Census to Census. Figure Comparison Community Population Population ,000 20,000 15,000 10,000 5, Greensburg Martinsville Princeton Georgetown Marysville Source: Indiana Business Research Center and US Census Bureau Housing The housing stock in Georgetown, KY and Marysville, OH was much newer than in other comparison communities. The median year built was 1981 and 1980 respectively, compared to 1963 for Greensburg. Nearly 20 percent of the housing stock in Georgetown and Marysville was built between 1995 and The growth in housing during the 1990s in Georgetown and Marysville was due to the explosive population growth in those communities during that period. Greensburg is likely to experience higher levels of residential development than they have experienced recently, but may not reach the significant growth that Georgetown and Marysville have experienced. Page 2-11

24 Figure Age of Housing Stock Comparison Communities Age of Housing Stock Number of Housing Units 1,800 1,600 1,400 1,200 1, or earlier March 2000 Greensburg Martinsville Princeton Greorgetown Marysville Source: US Census Bureau Greensburg s percentage of rental units is similar to other comparison communities. Comparison community rental percentages range from 36 to 43 percent, Greensburg has 37 percent rental housing. While Greensburg has a higher percentage of rental units than the county or the state average, the comparison shows this percentage to be consistent with other cities and by itself is not a cause for concern. The decline in homeownership, however, should be monitored to better understand the underlying causes. Figure Tenure Comparison Communities Tenure 80% 70% 60% 50% 40% 30% 20% 10% 0% Indiana Greensburg Martinsville Princeton Georgetown Marysville Owner Renter Source: US Census Bureau Page 2-12

25 Home Value The median home value in Greensburg was lower than all comparison communities except Princeton, IN ($56,400). Marysville, OH had the highest median home value, $132,400. The median home value in Greensburg was $85,100. Considering the age of housing units in Greensburg and the lower median incomes, the lower home values is not surprising. Jobs, such as those planned by Honda, will bring higher wages to the area, potentially spurring population growth, housing demand and construction, and increasing home values. Figure Median Home Value Comparison Communities Median Home Value $140,000 $120,000 $100,000 $80,000 $60,000 $40,000 $20,000 $0 Greensburg Martinsville Princeton Greorgetown Marysville Source: US Census Bureau Income Greensburg s median income ($38,029) was higher than Indiana comparison communities, but lower than Georgetown, KY ($42,186) or Marysville, OH ($46,765). Incomes in Georgetown and Marysville are influenced by their existing automotive manufacturing facilities wages. There is potential for the median income in Greensburg to rise as higher wage jobs come to the community. Page 2-13

26 Figure Median Household Income Comparison Communities Median Household Income $50,000 $45,000 $40,000 $35,000 $30,000 $25,000 $20,000 $15,000 $10,000 $5,000 $0 Indiana Decatur County Greensburg city Martinsville city Princeton city Georgetown city Marysville city Source: US Census Bureau Eleven percent of the Greensburg population lived in poverty in 1999 (Census 2000). This is comparable to Martinsville, IN and Georgetown, KY. Princeton, IN had a poverty rate of 16 percent and Marysville, OH had a poverty rate of only six percent. The largest percentage of those in poverty were working age, years old. Physical Analysis Maps Figures 2.17 through2.21 illustrate the existing conditions in the community. Key Issues Through the public input, data collection, and existing conditions a number of issues were identified. These issues become the basis for the planning principles and ultimately for the goals of the comprehensive plan. The key issues identified were: The need for additional quality housing that meets the needs of a variety of income levels and lifestyles. A desire to improve the walkability of the community, making it more pedestrian oriented. The importance of downtown revitalization and infill development. The need for well planned, attractive business corridors. The need to annex areas outside the city limits where growth is occurring or planned. The need to focus on the future development of the I-74/US 421 interchange. Page 2-14

27 CHAPTER 3 VISION, GOALS, & PLANNING PRINCIPLES Introduction The Greensburg Comprehensive Plan is intended as a working community document. A combination of long and short-term goals, this document is intended to serve as a guideline with respect to future development decisions so that the City may realize its vision for the future. The following goals and planning principles are deliberately broad in nature and relate to a vision that answers the question, Where do we want to go? The objectives and action steps provided in Chapter 9, are intended to guide the day-to-day decision-making concerning more specific actions. These short-term action steps say, given our long-term goals and changing community conditions, these are the projects and programs that we want to complete in the shortterm, and this is how we plan to accomplish them. The following Vision, Goals, and Planning Principles were developed through a series of key stakeholder interviews and public workshops, and steering committee meetings. This Chapter serves as the City of Greensburg s foundation as it strives to meet the needs and capitalize on opportunities relating to growth management, transportation and public facilities. Vision Statement Greensburg, home of the Tower Tree, will be a community whose distinctive identity as a regional employment center with small town charm is reflected in our commitment to promote managed growth while being good stewards of the land in order that we may protect and enhance the quality of life for all our residents and future generations. Growth Management Goals Goal Encourage a range of housing choices, including a range in type, size, location, and quality to meet the needs of current and future residents. Goal Create walkable, mixed-use neighborhoods, to improve the quality of life and avoid development of isolated subdivisions. Goal Revitalize historic areas in the downtown and its surroundings and redevelop underutilized areas in which there is existing infrastructure. Page 3-1

28 Goal Create a system of well-planned business corridors, each with a strong sense of place, which compliments the Greensburg community identity. Goal Encourage a mix of complimentary land uses while avoiding known nuisances. Goal Actively pursue the annexation of properties which currently benefit from the services provided by the City of Greensburg. Goal Promote the responsible expansion of the City s utilities into unincorporated areas. Transportation Goals Goal Develop a multi-modal transportation system, including motorized, nonmotorized and pedestrian infrastructure in the city of Greensburg to provide for the mobility of all citizens. Goal Create and maintain an interconnected thoroughfare network for the efficient movement of people, goods and services. Goal Employ the principles of access management and the use of architectural design and site development standards to reduce congestion, increase pedestrian activity and enhance the identity of major corridors. Public Facilities Goals Goal Develop and rehabilitate public facilities as community focal points that reflect the identity and quality of life in the city of Greensburg. Page 3-2

29 Goal Build and maintain practical, functional and well-located public facilities and spaces within the community. Goal Design public facilities to reflect the values of the city of Greensburg, including tradition, practicality, safety, and a forward thinking approach to the growth of the overall community. Planning Principles The planning principles are sounds principles of community planning and development selected from a variety of sources. The principles were presented to the steering committee along with the supplementary supporting points. The planning principles were translated into the goals for the plan. Traditional Communities: Create a range of housing choices and opportunities in locations where the infrastructure is adequate An aging baby-boom population will create demand for lowmaintenance, single story homes Young professionals and empty nesters are drawn to creative or unique spaces, such as condos or apartments above downtown retailers Executive housing helps keep the local management and professionals living in the community and involved Families tend to prefer well-designed, affordable homes (generally single family) in neighborhoods with sidewalks, parks, and access to schools and neighborhood retail Allow for the construction and use of live over work units where appropriate Provide attractive, well-designed, well-constructed affordable housing Integrate affordable housing throughout the community avoiding the centralization of such housing Create walkable neighborhoods with a discernable center that is a 15 minute walk from all dwellings; connections to other neighborhoods and key places in the city Neighborhoods with safe pedestrian connections encourage children to play outdoors and walk or bike to school Neighborhood centers, such as parks, provide opportunities for people to gather and children to play without use of a car Page 3-3

30 Safe pedestrian networks encourage people of all ages to exercise Neighborhoods with sidewalks and neighborhood centers foster tightly knit social groups Neighborhoods interconnected with curvilinear streets and pedestrian ways, relieve traffic on collectors and arterials Foster distinctive, attractive communities with a strong sense of place (design aesthetics, restrictive covenants and discourage manufactured home parks) Public spaces that are well defined and strategically distributed contribute to overall quality of life Civic buildings that are prominent, attractive, and functional promote community pride and foster identity based on place Distinctive communities attract investment because they establish an identity that is memorable Architecture and site design requirements as part of special overlay districts are tools to help foster a unique sense of place and add to the value of real estate Encourage a mix of complimentary land uses while avoiding known nuisances Mixed uses can reduce the number of vehicle trips and length of trips Residential uses in primarily commercial areas can increase the viability of commercial uses by creating additional demand Complimentary uses in the same district, such as residential mixed with downtown commercial adds to the vitality of the district Allowing uses such as residential near known nuisance uses, such as stock yards, airports, or factories can lead to future conflicts between residents and vital community assets Encourage revitalization of the historic downtown and neighborhoods Growth and reinvestment in the downtown and historic neighborhoods minimizes the need for new infrastructure development by creating infill opportunities where roads, sidewalks and utilities already exist Redevelopment and revitalization deter areas from becoming blighted Downtown provides the community with much of its identity, which is lost if the downtown deteriorates significantly Create an identity, complete with a niche retail/service market, for downtown Page 3-4

31 Historic neighborhoods are generally walkable, have community places such as parks, and have a mix of housing styles and types Infill construction should respect the form of the existing, historically significant structures without emulating their details, thus detracting from their authenticity Downtown is the heart of most communities and an identifiable center for government services, financial institutions, entertainment and history Parks and Open Space: Small playgrounds are accessible to homes Children can play in small groups at neighborhood parks There is no need to drive to a playground if parks are accessible Promote natural resources, green spaces, and recreational resources Preserving and creating open space enhances the community s quality of life Linking parks, trail heads, urban plazas, educational institutions, etc. can create a network of open spaces and recreational areas Protecting critical environmental areas such as riparian corridors and flood plains adds to the green space of the community Enhancing natural beauty by balancing the hardscape of the built environment (i.e. parking lots, retail and commercial centers, industrial parks, downtown, etc) through the incorporation of landscaping as softscape elements can reduce some of the harmful effects of development Providing habitats for plants and animals demonstrates environmental responsibility for future generations Use of high impact, low-maintenance landscaping through the use of planting materials native to this part of the country contributes to the authenticity and natural beauty of the community Managing Growth: Encourage development patterns that build on existing infrastructure and population centers (infill development), including remediation and redevelopment of Brownfields Infill and Brownfield development use existing infrastructure (water, sewer, roads, etc.) Page 3-5

32 Developing or redeveloping vacant or abandoned properties supports surrounding property values Placing active uses on vacant or abandoned sites returns them to the tax rolls or to service for the public good Minimize the spread of low density, non-contiguous development by encouraging new development to be of an appropriate intensity and served by adequate public facilities Low-density, non-contiguous development is expensive to serve with public facilities and city services The costs to expand services, utilities and infrastructure is sometimes passed on to existing residents in older areas through higher utility rates and taxes Compact development minimizes the number of vehicle trips and length of trips Development can be directed to areas by public investment in infrastructure ahead of growth Directing growth to areas that are served by adequate public facilities reduces the cost of providing services New investment along highway corridors should complement investment in existing community business centers Highway corridors are the first image visitors have of the community New development that causes existing businesses to fail harms the community by leaving empty spaces that can lead to blight Public investment in highway corridor improvements can spur private sector investment in businesses along the corridor Update the City s Zoning and Subdivision Control Ordinances to provide for the appropriate retail uses which cater to resident s day-to-day needs for the purpose of eliminating unnecessary vehicle trips to the commercial centers of the community Transportation: Provide a variety of transportation choices Sidewalks, bike lanes, and multi-use paths provide safe ways for people to move around the community without using cars On-call, or demand responsive, public transportation systems provide mobility opportunities, particularly to the elderly and disabled Page 3-6

33 Opportunities for non-motorized transportation can be incorporated into new road corridors and retrofitted into existing corridors Integrating opportunities for bicycle transportation with bicycle parking at stores, restaurants, and public buildings encourages use of bicycles. Bicycle tag programs increase the safety of parking bikes in public Transportation systems should be designed and operated in a way that protects the health and safety of all people Accommodations for movement of farm equipment in appropriate locations is vital for the safety of motorists and farmers Incorporating the use of traffic calming devices such as: relatively narrower streets, neckdowns, change in pavement, use of medians and roundabouts improves safety and the quality of life for residents Streets form a connected network Vehicle miles can be reduced because there are direct routes to destinations Fire departments have direct access to homes and businesses, reducing response times Children can walk between neighborhoods Use of the traditional street grid or orthogonal street patterns and discouraging the use of cul-de-sacs reduces traffic in front of more homes while increasing the safety of the neighborhood The number and frequency of automobile access driveways along road corridors should be minimized Access management improves traffic flow by minimizing the number of places where traffic slows for turning movements Shared driveways and connected parcels minimize shorts trips on the road to get from business to business Site Layout and Aesthetics When parking is provided at the rear of buildings, where appropriate, buildings can be constructed closer to the road to encourages pedestrian activity Buildings, be they residential, commercial or industrial, should be required to address the street (not turn their back on the street and its pedestrian environment), through their orientation and façade treatments Page 3-7

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35 CHAPTER 4 LAND USE Introduction Planning for the future land use patterns of the community is one of the primary objectives of a comprehensive planning process. This includes developing a future land use map in addition to the goals, objectives, and policies that will help the Plan Commission, the Board of Zoning Appeals, and the City Council make land use decisions that help the community achieve its vision. The growth management goals and objectives for the City of Greensburg and the future land use map are presented in this chapter. Growth Management Goals & Objectives Goal Encourage a range of housing choices, including a range in type, size, location, and quality to meet the needs of current and future residents. Objectives Goal Increase the types of market rate housing available in Greensburg (e.g., starter homes, homes for the elderly, executive housing, etc.) Increase the use of upper floors in downtown buildings for residential use Disperse affordable housing throughout all areas of the community Encourage the development of live-over-work structures where appropriate Promote traditional neighborhood development for new neighborhoods Create walkable, mixed-use neighborhoods, to improve the quality of life and avoid development of isolated subdivisions. Objectives Goal Encourage the development of neighborhood centers, such as parks and small neighborhood retail areas Reduce vehicle trips and miles traveled within the City Limit the approval of residential developments proposed to locations which are adjacent to the existing urban infrastructure or where infrastructure will be built within the time frame of the construction of the development Revitalize historic areas in the downtown and its surroundings and redevelop underutilized areas in which there is existing infrastructure. Page 4-1

36 Objectives Goal Promote infill development Maintain the authenticity of historically significant structures Reduce the number of deteriorating neighborhoods Protect and enhance the City s identity through public improvements within Downtown Greensburg Promote Downtown Greensburg as a center for government services, financial institutions, locally owned specialty retail, entertainment and history Create a system of well-planned business corridors, each with a strong sense of place, which compliments the Greensburg community identity. Objectives Goal Improve the experience of motorists and pedestrians as they traverse the city s business corridors Identify locations for planned business corridors Increase the viability of business corridors by encouraging the incorporation of certain types of residential uses Leverage public improvements throughout the city to encourage private investment Encourage the use of native, non-invasive planting materials Limit approval of commercial developments to locations which are adjacent to the existing urban infrastructure Encourage a mix of complimentary land uses while avoiding known nuisances. Objectives Goal Encourage buffers or less intensive uses between incompatible land uses Increase the vitality of zoning districts by providing for a mix of permitted complimentary uses where appropriate Reduce the likelihood of conflicts between residential uses and known nuisances such as stock yards, airports, factories, junk yards, etc. Support relocation of existing nuisance uses to more appropriate areas Actively pursue the annexation of properties which currently benefit from the services provided by the City of Greensburg. Objectives Devise an annexation strategy/policy Page 4-2

37 Goal Promote the responsible expansion of the City s utilities into unincorporated areas. Objectives Scenarios Devise an annexation strategy/policy Two scenarios of potential future land uses were presented to the Steering Committee for consideration. One scenario reflected the aggregate of the scenarios developed by the public during a public workshop. The other scenario was produced focusing on the planning principles. The two scenarios are presented below. The first scenario demonstrates the quantity and location of growth that the public felt was appropriate for the community during a public workshop. It is based on their knowledge of the community, hopes for the future, and information they have heard regarding speculative development proposals. Scenario one is shown in Figure 4.1. The second scenario was developed based on the planning principles and projections of the amount of development needed based on the population projections reflecting the impact of Honda. The land use projections assume that in the future a similar amount of land will be needed per person for each type of land use as is currently being used. Scenario two is shown in Figure 4.2. Page 4-3

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41 Type, Quantity, and Quality of Development Managing land use in the community includes managing the type, quantity, and quality of development that occurs. The type is generally expressed in broad land use categories like residential or commercial. The quantity of development considers how much development is appropriate for the community. This is primarily expressed in the future land use map along with the location of development. Quality seeks to make a public statement of the standard of development that is expected in the community including open space, landscaping, and building requirements. Type Quantity Residential development should reflect a range of market types New commercial development should complement, rather than compete with, existing businesses New industrial development should focus on supporting existing industries in the community Neighborhood commercial areas should be located to serve approximately 1,000 households Quality New subdivisions should provide for common open space or public park land Building materials should be of a high quality and require minimal maintenance Location Criteria The location criteria supplement the information on the future land use map with more descriptive information about where specific land uses should be located relative to public facilities, road types (classifications), or adjacent uses. Residential development should be located where it can be served by municipal utilities including water and sewer Community and residential commercial development should be located in existing or planned commercial areas along arterials or at the intersection of arterials and collectors Neighborhood commercial development should serve the day to day needs of residents and be located at the intersection of collectors Page 4-7

42 Industrial development should be located in designated industrial areas and be served by appropriate infrastructure including roads, rail, water, sewer, and telecommunications Agricultural business should be located in a designated agricultural business park served by appropriate infrastructure including roads, rail, water, and sewer New public schools should be located within walking distance of the neighborhood they serve New public buildings should be located where they functionally serve the community, and visually anchor a neighborhood, block, or district Residential development should be buffered from known nuisances and agricultural uses Future Land Use Map The Future Land Use map represents the consensus of the community on the quantity and location of development that should occur in the community by This map is shown in Figure 4.3. Page 4-8

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45 CHAPTER 5 TRANSPORTATION Introduction The transportation system forms the backbone of the community. I-74 provides the community with connections to larger metropolitan areas such as Indianapolis and Cincinnati. US Highway 421 provides noninterstate connections between communities, complemented by State Road 3 for north-south access and State Route 46 for east-west access. The roads and streets serving the community connect into these routes to form a regional transportation system. Roadways are not the only means of transportation in Greensburg. Pedestrian connections such as sidewalks and trails are expected to play an increasingly important role in the community. The railroad has always served as a focus of industry for the community, and in the future it will again serve as a major industrial transportation system as Honda will use it to move materials. Transportation Goals & Objectives Goal Develop a multi-modal transportation system, including motorized, nonmotorized and pedestrian infrastructure in the city of Greensburg to provide for the mobility of all citizens. Objectives Provide a pedestrian network which meets or exceeds standards set forth in the Americans with Disabilities Act (note: design standards/accommodation) Require the installation of sidewalks and trail connections in the development of new neighborhoods Encourage the development of an appropriate public transportation system to increase the mobility of the city s residents Extend public improvements to include infrastructure for bicyclists Develop multi-modal infrastructure such as trailheads pedestrian crosswalks, signage, etc. and incorporate design features to reflect the city s character Goal Create and maintain an interconnected thoroughfare network for the efficient movement of people, goods and services. Objectives Provide a safe, efficient network for the delivery of emergency services to all areas of the city Provide for the safe and efficient movement of farm vehicles within the city Review thoroughfare connections to identify new road connections, widening, improvements, etc. that will improve mobility Page 5-1

46 Increase safe pedestrian access to destinations such as parks, schools, libraries, and other community facilities and institutions Goal Employ the principles of access management and the use of architectural design and site development standards to reduce congestion, increase pedestrian activity and enhance the identity of major corridors. Objectives Increase the use of traffic calming devices (i.e. neckdowns, pavement markings, medians, roundabouts, access lanes, etc.) in appropriate residential locations to limit through traffic Require the use of common entrances, shared driveways, shared parking lots, frontage roads etc. along business corridors to reduce traffic congestion Encourage the location of parking at the rear of buildings to foster a pedestrian friendly environment Promote the use of human scale and other pedestrian friendly elements in the design for new development and redevelopment Require commercial centers and subdivisions to provide stub streets and more than two entrances Functional Classification Functional Classification refers to the grouping of roadways into systems, or classes, reflecting their role within a larger network of roadways. The process of defining functional classification requires an understanding of the primary purpose served by roadways with respect to mobility (through travel, long distance travel) and access (service to properties, driveways, parking lots). Following are definitions of functional classifications typically used in urban and suburban settings: Principal (or Major) Arterial. In every community there are roadways that serve to collect trips from large areas and link them with destinations elsewhere within or outside the community. Highways that travel through a community are typically principal arterials. These roadways may provide direct access to some properties (typically discouraged) but their primary role in the hierarchy of streets and highways is to provide mobility for large numbers of travelers. Minor Arterial. These roadways link principal arterials with roadways of other classifications. They are typically used for trips of moderate length or for lower volume through trips. Minor arterials may provide access to some properties (more than principal arterials), but their primary function is still mobility. Collector. These roadways provide the bridge between local streets that serve primary access functions of individual properties and the arterial system used for longer trips. Page 5-2

47 Collector streets serve both a mobility and an access function. Whereas arterials typically do not penetrate residential neighborhoods, collectors are frequently designed as the main streets of neighborhoods, linking local streets serving residential properties with the arterial system used to conduct regional travel. Local. Just as the name implies, local streets and highways are the lowest functional classification. They are intended almost entirely for access. Their mobility function is limited to connecting individual properties to collectors and/or arterials for continuation of trips. Local streets are often defined as those roadways that are not identified as collectors or arterials. Most of the mileage of any urban or suburban system is made up of local roadways, but they have the lowest amount of travel per mile of any of the classes. The Federal Highway Administration provides a recommended method for classifying a proposed roadway network (FHWA Functional Classification Guidelines, 1989). This method is generally defined below: 1. Identify a future year urbanized boundary 2. Prepare road network map 3. Identify future land use patterns 4. Identify interstates and freeways through the area as principal arterials 5. Identify arterials from adjacent areas that pass through the area as principal arterials 6. Identify minor arterials based on spacing and role within the roadway system, considering arterial linkages from adjacent communities 7. Review the arterial system for area coverage 8. Identify the collector street system using the definitions and general criteria provided in the previous table 9. Identify the local street system as the remaining roadways 10. Review the system as a whole for balance and reasonableness The Federal Highway Administration provides guidelines on the typical balance of mileage and travel volumes within each functional class, which are shown in Figure 5.1. A careful review of this table shows that the higher functional class roadways carry greater volumes of traffic despite having less mileage. This highlights the importance of planning for adequate capacity on the arterial network. The functional classification map is shown in Figure 5.2. Page 5-3

48 Figure 5.1: Recommended Balance of Roadway Network in Urban Areas System % of Miles Traveled % of Road Mileage Principal Arterials 40-65% 5-10% Principal Plus Minor Arterials 65-80% 15-25% Collectors 5-10% 5-10% Local Roads 10-30% 65-80% Source: FHWA Functional Classification Guidelines, 1989 Page 5-4

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51 CHAPTER 6 PUBLIC FACILITIES Introduction Public facilities including water and wastewater treatment and distribution/collection, emergency services, social services, parks and recreation, and government owned properties such as city hall, are one of the areas of communities that must be addressed in the comprehensive plan. There is some overlap between the issues related to public facilities and the land use and transportation sections of the plan. New development is generally encouraged to locate in areas that can be efficiently served by public utilities, and roads are a major part of the public infrastructure, for instance. This chapter will focus on new public buildings and properties in ways that support a positive image of the City of Greensburg. One of the key ideas presented in this chapter is the need for an additional fire station to serve the area south of the railroad tracks as train traffic increases and residential development occurs to the south east. These areas are currently at the outer edge of the area that can be served within the fire department s standard for response times. Increased train traffic may heighten the frequency of access problems caused by the number of at-grade crossings in the community. Public Facilities Goals & Objectives Goal Develop and rehabilitate public facilities as community focal points that reflect the identity and quality of life in the City of Greensburg. Objectives Goal Create a means to identify and define public places within the City of Greensburg Increase the use of softscape elements (i.e. landscaping) to complement the built environment Increase the use of non-invasive native plant materials Build and maintain practical, functional and well-located public facilities and spaces within the community. Objectives Locate new fire and police facilities in strategic locations to protect all residents Expand City utilities into designated growth areas consistent with the future land use component of the Comprehensive Plan Page 6-1

52 Promote the inclusion of neighborhood parks in all residential developments Promote the protection of environmentally sensitive areas, such as riparian corridors and flood plains, throughout the City of Greensburg Increase access to public facilities by incorporating them as destinations in the pedestrian network Increase preservation of open spaces Decrease environmental degradation by providing habitats for plants and animals Require drainage ponds to be designed in such a manner as to appear like natural wetlands Goal Design public facilities to reflect the values of the City of Greensburg, including tradition, practicality, safety, and a forward thinking approach to the growth of the overall community. Objectives Improve the community s identity through the establishment of civic buildings as prominent, attractive, and functional features throughout the city Create an identity program to provide consistency to the graphic representation of City facilities Work with Decatur County to establish a convenient, accessible one-stop center for social service offices and facilities Public Facilities Map The key public facilities are mapped in Figure 6.1. These include the Greensburg water service limits, the sewer service boundaries, the current police and fire stations, a general location for a new fire station, the city hall, current parks and recommended future park space. Page 6-2

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55 CHAPTER 7 SPECIAL STUDY AREAS Introduction Special study areas are those geographic areas of the community that, due to a special status or nature, warrant additional focus and study. Two special study areas that emerged from the planning process were downtown and the I-74/US 421 interchange. The following sections will introduce these topics and discuss them in some level of detail. Downtown Greensburg s downtown is one of the key assets of the community and serves as the identity for the city and the county. In recent years several efforts have been made to improve the downtown and increase its economic vitality. These efforts continue as the community works to balance the new development to the northwest of the community with preserving and maintaining the community s historic core. The community listed the downtown area on the National Register of Historic Places in The district includes the area surrounding the courthouse square. A number of events currently occur in downtown Greensburg that draw visitors from around the region as well as encourage a sense of pride in the community. These events include Master Harold s Fiddlefest, the Greensburg/Decatur County Farmers Market, the Fourth of July Parade, the Just Take it Downtown Car Show, and the Tree City Fall Festival. A 2004 study by HyettPalma established an action agenda for the downtown, including: Making downtown viable for future generations Filling vacancies with a better mix of stable and unique businesses Increasing the number of retail businesses and food establishments including a greater variety of food and outdoor dining Developing upscale apartments Creating additional draw and reasons for people to come downtown Stressing downtown s architectural history Ensuring that downtown becomes a destination in its own right, and not a pass-through between destinations Making downtown a scene that is alive, cool, and artsy with day and evening activities Attracting residents, tourists, and people of all ages Making sure downtown continues to be a slice of Americana Two groups have emerged to address issues of downtown development in Greensburg. The Downtown Greensburg Development Corporation (need info here). Heart of the Tower Tree (HOTT) City is a not-for-profit public/private partnership that was established in 2005 to promote Page 7-1

56 commercial growth, preserve the historic aspects, and enhance the quality of life of downtown. HOTT City is the community s MainStreet affiliate. They have a grant pool available and are responsible for such programs as the Farmers Market, the façade improvement grant, and the spring cleanup project. The Downtown Greensburg Development Corporation, formerly the Downtown Merchant s Association, is the other downtown organization. The Downtown Greensburg Development Corporation was incorporated in September 1985 as a 501(c)(3) organization to preserve the heritage of the area surrounding the Decatur County courthouse generally referred to as the downtown and to promote, enhance, and develop this area and its viability as a part of the larger community. The needs identified for downtown through the comprehensive planning process include establishment of a downtown publication and building repair. Another issue identified is the need to consolidate the two downtown organizations in order to make efficient use of the resources available and minimize competing agendas between the organizations. Information Indiana Main Street Indiana Main Street encourages the redevelopment and revitalization of downtown areas. The program is based on the National Main Street program objectives of economic restructuring, design, organization, and promotion. Downtowns need quality design and promotion of their businesses and activities to be vibrant. Implementing design programs and promotional activities requires an organization that can support and coordinate those programs. The most successful design and promotional programs and organizational support will not make downtown thrive without understanding the market realities of the area and the businesses downtown. This is why the Main Street approach to downtown development must include all four components. Greensburg is a certified member of Indiana Main Street through the HOTT City program. A downtown development initiative that can be a single, coordinated, strong voice for downtown issues is needed to effectively implement a downtown revitalization effort. National Register of Historic Places The National Register is part of a program to coordinate and support efforts to identify, evaluate, and protect historic resources. Properties listed in the register include districts, sites, buildings, structures, and objects that are significant in American history, architecture, engineering, and culture. Generally, properties eligible for listing in the National Register are at least 50 years old. Properties less than 50 years of age must be exceptionally important to be considered eligible for listing. Under federal law, owners of private property listed in the National Register are free to maintain, manage, or dispose of their property as Page 7-2

57 they choose provided there is no federal involvement. Owners have no obligation to open their properties to the public, to restore them or even to maintain them, if they choose not to do so. Listing on the National Register adds prestige to a property, makes the property eligible for planning consideration in federally funded projects, and makes the property eligible for some tax programs. Façade Improvement Programs Façade improvement programs often take the form of grant or low interest loan programs linked to design standards that are intended to improve the character of an area while providing the necessary incentives to property owners to do it right. The design standards are as much a teaching tool what are and are not historically appropriate changes to facades as they are a regulatory tool. Grant funds do not have to be repaid. Low interest loans are often established as a loan pool where the repayment of one loan allows for the issuance of another loan. Historic Preservation Ordinances A historic preservation ordinance establishes the procedures and policies established by a local unit of government in order to encourage preservation of the community s historic structures. Such an ordinance may be part of the zoning ordinance. Historic preservation ordinances generally require the owners of historic properties or properties in historic districts to obtain a certificate of appropriateness before any building activity. Under IC , municipalities may create a preservation area in conjunction with the establishment of a Preservation Commission. The procedures to be followed by the commission are outlined in the enabling legislation. Historic District Overlay Zones An overlay district is a layer of zoning regulations that are imposed on a specific area in addition to the base zoning requirements. In a historic district this may include additional architectural or landscaping requirements, varied setbacks or bulk standards, different sign and lighting regulations, and/or an additional review process before permits are issued. Overlay districts are adopted as a part of the zoning ordinance and are administered in the same way as the zoning ordinance. Decisions related to the overlay district may be appealed to the Board of Zoning Appeals. Publications Publications can help a downtown organization get the word out about what is happening in the downtown. They market events and programs in addition to sharing information to help build momentum for programs. Some publications focus on a local market, while others are geared more toward a tourist market. Page 7-3

58 Examples of downtown publications include Muncie s Do it Downtown and the Broad Ripple Village (Indianapolis) District Guide. Muncie s Do it Downtown publication has largely converted to a web site with daily reminders of activities downtown, the ability to sign up for event reminders, news stories, and a calendar of events. The site also includes a directory organized around eat, play, shop, and live downtown. The Broad Ripple Village district guide provides residents and visitors with information about the village s history, events, a business directory, and a map. It is supported by a web site that includes much of the same information in an online format. I-74/US 421 Interchange The I-74/US 421 interchange is a key gateway to the Greensburg community and the focus of new industrial development with the development of the Honda Manufacturing of Indiana plant near the interchange. At this time there is relatively little urban development north of I-74 due to constraints including the lack of adequate infrastructure in the area and private property owner decisions. The new development occurring south of the Interstate have led many in the community to believe it is necessary for the community to extend north of the interstate. The land north of the interstate is in unincorporated Decatur County. As the land immediately south of the interstate is annexed into the City of Greensburg, contiguity will exist for the community to consider annexation north of the interstate. Information Planned Transportation Improvements The Indiana Department of Transportation (INDOT) has a major project underway at this interchange. The major activities that are a part of this project are: Reconstruction of US421/Old 421 Reconstruction of the I-74/US 421 interchange Realignment of CR 300N Reconstruction and extension of CR 250W New construction of an overpass road Figure 7.1 shows the interchange improvements that are part of the project. Page 7-4

59 Figure 7.1: INDOT Interchange Improvements Recommended Development Pattern Development north of I-74 at the US 421 interchange should be of a highway/regional commercial or light industrial/distribution nature. Access to the roadways should be carefully managed to prevent traffic congestion problems that affect the key highways. The Future Land Use map shows industrial development north of I-74, east of US 421 and south of I-74, west of US 421. Commercial development is shown south of I-74, east of US 421 and along the Interstate frontage. Since the interchange area is a key gateway to the community, design considerations in the area are critically important. The area surrounding the interchange should be subject to an overlay district that creates site design, architecture, signage, and lighting standards more stringent than in other areas of the community. The City should develop an annexation strategy for the process and timing of bringing the developable areas north of the interchange into the corporate limits. Page 7-5

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61 CHAPTER 8 SPECIAL TOPICS Introduction Special topics are those issue areas that became important during the development of the plan and warrant additional information, but are not necessarily able to be described in geographic terms such as downtown or an interchange. Four special topics that emerged from the planning process were annexation, infill development, corridors, and agricultural business parks. The following sections will introduce each topic and discuss it in some level of detail. Annexation Annexation is the process where municipal governments (cities and towns) bring more land into their corporate boundaries. There are three methods of annexation in Indiana: involuntary, voluntary, and supervoluntary. Types of Annexation Involuntary annexation is initiated by the municipality. The area to be annexed must be 1/8 contiguous to the existing corporate boundary and either zoned commercial or industrial, have a population density of at least three people per acre, or be at least 60 percent subdivided. Another option is for the annexation area to be ¼ contiguous and is needed and can be used by the municipality in the reasonably near future. Involuntary annexations are subject to remonstrance by the property owners. Voluntary annexation is initiated by a petition of at least 51 percent of the land owners or the owners of 75 percent of the assessed value of the area to be annexed. The area must be 1/8 contiguous to the existing municipal boundary. Voluntary annexations are subject to remonstrance by the property owners. Super-voluntary annexation is initiated by petition to the municipality of 100 percent of the property owners. The area to be annexed must be 1/8 contiguous to the existing municipal boundary. Super-voluntary annexations may only be challenged on the basis of contiguity. A remonstrance may be filed by 65 percent of the land owners or the owners of more than 75 percent of the assessed valuation of the annexation area. A remonstrance must be filed within 90 days after the publication of the adopted annexation ordinance. The annexation ordinance must contain: A description of the boundaries of the territory to be annexed The approximate number of acres to be annexed A description of any special terms or conditions of the annexation ordinance A description of any tax abatements adopted for the area Page 8-1

62 A fiscal plan is required for all annexations. The time of adoption of the fiscal plan depends if the annexation is involuntary, voluntary, or supervoluntary. The written fiscal plan must include: A definite policy meeting statutory requirements Cost estimates of planned services to be furnished, itemized by municipal department The method(s) of financing the planned services A plan for the organization and extension of services Non-capital services must be provided within one year of the effective date of the annexation, capital services must be provided within three years. In order to invalidate an annexation (support a remonstrance), the judge must find that all of the following are true: Police protection, fire protection, and street and road maintenance are adequately furnished by another provider There is a significant financial impact on residents or owners The annexation is not in the best interests of the land owners At least 65 percent of the property owners or owners of 75 percent of the assessed value opposes the annexation Purposes of Annexation Areas that should be annexed include: Islands or holes in the municipality Areas contiguous to the municipality that are provided with city services (police, fire protection, street repair and maintenance) Areas contiguous to the municipality that are developing, have developed, or are planned for development. Annexation Recommendations The City of Greensburg should: Develop an annexation policy and strategy Adopt formal policies regarding installation of infrastructure such as street lights and fire hydrants Pursue annexations consistent with the strategy defined Note: The 2007 Indiana General Assembly has two bills for consideration regarding annexation. One would require municipalities to pay the remonstrators court costs if the annexation was determined to be invalid. The other would reduce the property owners required to remonstrate to 51 percent. Infill Development Infill development is development of new uses on previously vacant land that is within the urbanized area and has access to urban services such as water, sewer, roads, police and fire protection, and other urban services. Another type of infill development is redevelopment, or development of new uses or structures on land which has been Page 8-2

63 previously developed, but is currently vacant or abandoned. One special type of redevelopment is Brownfield redevelopment, in which the previous use of a site either actually or potentially left the site with environmental contamination issues. Why Infill is Important When communities are not focused on infill development, they experience Greenfield development on new sites that do not have infrastructure or adequate services. These sites require extension of urban services. Often, these extensions are costly, particularly when development leapfrogs over some undeveloped parcels to reach others. Meanwhile vacant or undeveloped sites in the urban area are perceived as contributing to crime and blighted conditions, and may actually be doing so. These empty spaces can contribute positively to the tax base of the community and serve to stabilize and enhance the existing neighborhoods and commercial areas if they are developed. Infill development generally doesn t happen on its own, primarily due to the small size of parcels, regulatory barriers like zoning that makes the lot or structure non-conforming and/or unbuildable, lack of clear title or ownership, or perceived problems with the site. In order to encourage development of these sites, communities may provide incentives such as title clearing, land assembly, infrastructure maintenance or repair, or policies that overcome regulatory barriers. Brownfield Development Brownfield sites, those previously developed sites that are or are perceived as being environmentally contaminated, are an area of special concern. These sites need to be remediated, or cleaned up, before they can be put back into productive use if they are actually contaminated and cleared from liability if there is a perception that they may be contaminated. There are a variety of state and federal programs, often with financial assistance, to help communities address their Brownfield problems. Some environmental consulting companies specialize in Brownfield assessment and remediation. Brownfield programs can be initiated on either a site-by-site basis as a need arises or a development opportunity is presented, or on a community-wide basis where a group of elected officials, government agencies, and citizens work together to identify and prioritize sites for assessment and remediation, as well as the ultimate reuse of the site. Corridors Key corridors into a community serve as the community s front door the place through which residents, workers, and visitors first see the community as they enter it. The corridors provide the first impression of the community. To ensure a welcoming first impression, corridors should function well for transportation, be pedestrian friendly, be attractively Page 8-3

64 developed, and have amenities that make the corridor unique to that community. Corridor Planning Tools that can be used to improve corridors for transportation function and aesthetic purposes include corridor master plans, corridor overlay districts, and access management plans. Corridor master plans consider the transportation functions, land use needs and plans, pedestrian circulation, and aesthetic character of a corridor as a unified whole. They determine a desired future state of a particular corridor. These plans may recommend various projects including widening, realignment, inclusion of sidewalks or trails, landscaping, and streetscape enhancements. They may also recommend such policy changes as adopting an access management plan or policy or implementing a corridor overlay district in the zoning ordinance. Corridor overlay districts are special districts added to the local zoning ordinance. The requirements for a particular corridor (or specified corridors) are laid over the base zoning district and provide regulation that is in addition to the requirements of the base district. Typical additional requirements in a corridor overlay would include enhanced landscaping, varied setbacks or parking lot locations, additional lighting requirements, and architectural standards. Access management plans are policy statements that establish how access to businesses will be handled from various roadway types. This includes the number or spacing of curb cuts (such as driveways), the spacing of signalized intersections, and the regulation of turning movements (particularly left turns). These policies may be accompanied by illustrations or maps that exhibit the preferred access patterns. The purpose of access management is to regulate the access to parcels in a way that maintains or improves the flow of traffic along a roadway. Key Corridors for Greensburg There are several key corridors that serve Greensburg. I-74 is the most prominent and most visible. Key corridors that come into the Greensburg community include US 421, SR 3, SR 46, Freeland Road, and Lincoln Street. I-74 is a major interstate connecting Indianapolis and Cincinnati as well as points beyond. Honda will be located at the western entrance to the community from I-74. There is available frontage on the south side of the interstate between the US 421 and SR 3 exits. There is little or no development located north of the interstate between these interchanges. The US 421 interchange is undergoing major reconstruction in preparation for the Honda plant. The US 421 corridor is a business corridor from I-74 to the downtown and through to the west side of Greensburg. The corridor makes several Page 8-4

65 turns through downtown Greensburg. There are few areas along the roadway that have curbs and gutters or sidewalks. Many of the structures are not set very far back from the road and the land uses are relatively mixed. The intersection with State Road 3 is the only area where there is an attempt at access management. The SR 3 corridor links Greensburg with cities like Muncie to the north and North Vernon to the south. It has an interchange with I-74 and connects the interstate with downtown via Lincoln Street. SR 3 itself heads to the east to bypass downtown. The SR 3/I-74 interchange has hotels, retail, and apartments. South of the intersection with US 421, the road is primarily rural. SR 46 is an east-west connector from the SR 3 bypass to the east side of the community, north of the railroad. Freeland Road is an east-west connector located south of I-74, with cities like Columbus to the west and Batesville to the east. The plan for Freeland Road is to improve the road and develop the sections that are discontinuous between SR 3 and US 421. Lincoln Street is the connection between the SR 3/I-74 interchange and downtown. The Lincoln Street corridor has recently been through a process to design roadway improvements and enhancements for the corridor from SR 3 to SR 46. Lincoln Street Enhancements The Lincoln Street enhancement project master plan was intended to: Identify existing aesthetic elements which should be preserved/protected and/or enhanced as the corridor is developed Develop alternative themes by which the corridor could be developed Establish a coherent identity throughout the corridor Establish pedestrian facilities that reinforce the theme and work in conjunction with the access management strategies to create a safer pedestrian environment Develop conceptual design drawings for enhancement treatments that will be used as the basis for future design development and construction The process involved an inventory of the existing conditions and identifying opportunities and constraints in addition to a significant public involvement process. A steering committee was used to serve as liaison between the community and the design team. Public meetings were held to present conceptual treatments and final recommendations. The design team also met with the Tax Increment Finance (TIF) board to discuss the project. The enhancement plan includes: Sidewalk treatments Interpretative panels and opportunities Page 8-5

66 Landscape treatments Decorative light and signal poles Banners Street signs Wayfinding signage Agricultural Business Park In recent years there has been an increased awareness by the general public that agriculture is a business, indeed an industry, and that parts of agricultural processing may not be particularly appropriate in rural areas due to infrastructure needs, but are not necessarily well-suited for standard industrial parks because of their agricultural product inputs and relationship with the land. This awareness has led to a variety of means of encouraging value-added agriculture and the processing of agricultural products. One of these models is the agricultural business park. An agricultural business park uses the elements of a traditional business park that are successful, such as appropriate zoning, infrastructure, and land that is separated from of buffered from other uses, and combines them with the needs of agricultural products processors. These needs may be access to transportation systems, access to crops or research fields, or other needs specific to the type of agri-business. Agriculture as Industry Agricultural businesses include processors of grain for food, feed, or seed; ethanol or bio-diesel producers; slaughterhouses and animal rendering facilities; canneries; and other businesses that use agricultural products as inputs for production. The rise in fuel prices in the past several years has accelerated the development of alternative fuel sources such as ethanol and bio-diesel. Many such processing facilities have been developed in the state of Indiana in the past year or two and more are slated for construction. In some communities, including Greensburg, agricultural production facilities have developed over time in locations that are now creating urban land use conflicts. These uses include stockyards and grain elevators. These uses are important to the agricultural industry, but like other industries, may have negative impacts on the surrounding areas. Models of Agricultural Business Parks Muncie and Delaware County are one of the state s leaders in the development of zoning for agricultural businesses and creation of an agricultural business park. In 2005 the Delaware County Commission approved unanimously approved the creation of a new zoning district - the "agricultural bio-enterprise zone." The "Agricultural Bio-Enterprise Zone" will give Muncie-Delaware County a unique product to market to agricultural businesses looking at the State Page 8-6

67 of Indiana," said Terry Murphy, Vice President, Economic Development for the Vision 2006 Economic Development Program. "This zone classification and eventual Ag Park development seeks to improve the economic stability of area farmers and create new jobs and investment in the county," added Murphy. The purpose of the AB-EZ is to provide a business park-like environment that is supportive to industries that add value to agricultural products produced locally. Rob Swain, economic development director for the state department of agriculture, said Delaware County is the first community in the state to adopt an ag-park ordinance. Targeted businesses in the new zone area include existing technology providers of food, fiber, and energy for human, animal, and industrial applications as well as new applications from the rapidly developing areas being discovered through biotechnology. The AB Agricultural Bio-Enterprise Zone was created to provide an area for exclusive location of those industries that use or produce renewable agricultural products or direct derivatives of renewable agricultural products as inputs for their manufacturing, processing, production, research, or refining operations. An AB Agricultural Bio-Enterprise Zone is intended to be occupied by multiple industries, including farming operations, so that the infrastructure, by-products, expertise and jointly developed knowledge and technologies to generate new value added agricultural products can be shared and/or reused by the occupying industries. For an area to be classified as an AB Agricultural Bio-Enterprise Zone, the area must contain at least three hundred (300) acres comprised of contiguous or adjoining properties separated only by existing public roads, highways, or railroads. Any future additions to an existing AB Agricultural Bio-Enterprise Zone shall be contiguous or adjoin in the same manner and add a minimum of twenty (20) acres that is in one tract of land. The Delaware County Commissioners voted to rezone over 800 acres of land near the town of Shideler from "agricultural" zoning to the county's new "Agricultural Bio-Enterprise Zone". The zoning chance sets the way for the area to be developed as an "Agricultural Industrial Park". It will be Delaware County's fourth industrial park. The new Agricultural Park is located near State Road 3 and State Road 28 providing potential new businesses with excellent access to both Interstate 69 and Interstate 70. The new park could be a prime location for businesses in the (1) food processing, (2) Ethanol, (3) Biodiesel, and (4) pharmaceutical sectors. Page 8-7

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69 CHAPTER 9 IMPLEMENTATION Introduction Implementation is the process of achieving the goals of the plan to reach the community vision. A part of implementation is having an action plan that details steps that should be taken, who is responsible for implementation of an action, and the timeline for completing the action. Potential funding sources are also suggested as a part of the action plans. The Programs and Tools section provides an overview of the funding programs and other tools for implementing the plan. The City of Greensburg may already use some of these tools, but restating their uses and connecting them to the actions in the comprehensive plan is helpful to people who may not be familiar with all of the operations of the community. Action Plans Action plans detail how the goals and objectives will be implemented to achieve the vision for the community. They include the action steps, responsible parties, timelines, and potential funding sources. The timelines recommended are general in nature. Short term actions should be completed by 2010, medium term between 2010 and 2015, and long term between 2015 and The potential funding sources are further detailed in the Programs and Tools section. Land Use and Growth Goal: Encourage a range of housing choices, including a range in type, size, location, and quality to meet the needs of current and future residents. Eliminate barriers to housing choice such as regulations that limit infill development through standards that create lots that are not buildable. Plan Commission City Council Downtown organizations General fund Short term Page 9-1

70 Establish guidelines for converting the upper stories of downtown commercial structures for residential use Downtown organizations Preservation Commission City Council Fire Department CFF Planning Grant Historic Landmarks Foundation of Indiana Short term Investigate the adoption of smart building codes OR develop a grant/low interest loan program to assist developers with additional costs (such as fire separation) created by redevelopment of historic mixed-use structures Downtown organizations Chamber of Commerce Chamber of Commerce (low interest loan) Medium term (short term for low interest loan) Create incentives for incorporating traditional neighborhood elements such as 360 degree design (or porches) in subdivisions Plan Commission City Council Home Builders General fund Short term Page 9-2

71 Establish design guidelines and a design review board to administer a set of architectural requirements to promote development which reflects community identity and prevents the development of Anywhere USA style development Plan Commission City Council General fund Community Focus Fund (CFF) Planning Grant Short term Goal: Create walkable, mixed-use neighborhoods, to improve the quality of life and avoid development of isolated subdivisions. Revise the zoning ordinance to allow for neighborhood commercial uses while regulating the size and permitted commercial uses to such small scale uses as dry cleaning pick up/drop off, pharmacies, corner markets, video rentals, etc. Plan Commission City Council Chamber of Commerce General fund Short term Require sidewalks or other pedestrian connections on both sides of each street between neighborhoods Plan Commission City Council General fund Short term Page 9-3

72 Design and build a multi-use trail system to encourage biking and walking between destinations such as neighborhoods, schools, library, parks, downtown, etc. Department of Natural Resources City County INDOT Recreational Trail Group DNR Recreational Trails Transportation Enhancement (TE) program Foundation, private Medium term Goal: Revitalize historic areas in the downtown and its surroundings and redevelop underutilized areas in which there is existing infrastructure. Relocate agriculture-based businesses currently located downtown to an agricultural business park Downtown organizations Chamber of Commerce County City EDC Farm Bureau IDEM Medium term Tax abatement Tax Increment Finance (TIF) Agricultural Enterprise Zone* (being considered by the General Assembly) Page 9-4

73 Create a program to identify potential Brownfield sites and funding sources to assist with clean up and receipt of a no further action letter IDEM City EDC Indiana Brownfields Medium to long term Market sites vacated by agriculture-based businesses as redevelopment sites to developers for specific projects EDC Chamber of Commerce Tax abatement TIF Medium term Review the bulk requirements in the zoning ordinance to ensure they aren t creating barriers to redevelopment and infill Plan Commission City Council General fund Short term Adopt an Historic Preservation Ordinance to protect, maintain, and enhance the character of the downtown area and its surrounding neighborhoods Downtown Organizations City Council Downtown organizations Short term Page 9-5

74 Establish a sidewalk, curb, and gutter repair program to assure safe and attractive walkways that meet all requirements of the Americans with Disabilities Act City Council Street Department General fund TIF revenue Short term Encourage the consolidation of the groups working on downtown issues in order to make better use of scarce resources and to provide a unified voice for downtown stakeholders Downtown organizations Chamber of Commerce City NA Short term Establish design guidelines in compliance with the Secretary of the Interior s Standards for Historic Preservation and a design review board to administer a set of architectural requirements to promote development and redevelopment which reflects the community s historic identity Downtown organizations City Council CFF Planning Grant Short term Page 9-6

75 Goal: Create a system of well-planned business corridors, each with a strong sense of place, which compliments the Greensburg community identity. Engage in corridor enhancement projects for the primary gateway corridors identified in the transportation plan map TIF Board City Council Street Department Plan Commission TIF revenue TE Funds Short term Identify and promote character districts within the community by designing signage, infrastructure, and streetscape enhancements unique to each district City Chamber of Commerce Downtown organizations TIF revenue Medium term Review and enhance landscape requirements for new development Plan Commission Short term City Council General fund Page 9-7

76 Revise the zoning code to encourage the use of native plants, natural materials, and natural shapes in the development of open spaces and retention/detention ponds Plan Commission City Council General fund Short term Establish design guidelines and a design review board to administer a set of architectural requirements to promote development which reflects community identity and prevents the development of Anywhere USA style development Plan Commission City Council General fund CFF Planning Grant Short term Goal: Encourage a mix of complimentary land uses while avoiding known nuisances. Review and revise landscape requirements to assure sufficient buffering based on type and intensity of adjacent uses Plan Commission City Council General fund Short term Page 9-8

77 Review permitted and special exception uses in the zoning ordinance to allow for appropriate mixed uses and removal of inappropriate permitted uses from some districts Plan Commission City Council General fund Short term Require significant buffers between new residential uses and incompatible land uses such as industrial or intensive agricultural businesses Plan Commission City Council General fund Short term Work with Decatur County to develop an agricultural business park and relocate targeted businesses from Greensburg to the agricultural business park EDC Chamber of Commerce City Council County Commissioners County Council Farm Bureau Tax abatement TIF Agricultural Enterprise Zone* Medium term Page 9-9

78 Assist agricultural businesses located in the center of Greensburg in relocating to the agricultural business park EDC Chamber of Commerce City Council County Commissioners County Council Farm Bureau Tax abatement TIF Agricultural Enterprise Zone* Medium term Formulate a redevelopment strategy for the parcels that will be available after relocation of agricultural businesses EDC Chamber of Commerce City Council County Commissioners County Council Farm Bureau CFF Planning Grant Medium term Page 9-10

79 Goal: Actively pursue the annexation of properties which currently benefit from the services provided by the City of Greensburg. Promote the responsible expansion of the City s utilities (water and sewer) into unincorporated areas that may be annexed in the future. Identify areas appropriate for annexation that meet state requirements for contiguity and other considerations such as density, land use, or community need Area Plan Commission City Plan Commission City Council General fund Short term Transportation Goal: Develop a multi-modal transportation system, including motorized, non-motorized and pedestrian infrastructure in the city of Greensburg to provide for the mobility of all citizens. Require sidewalks for new residential and commercial development, encourage sidewalks and multi-use trails for new industrial development where appropriate Plan Commission City Council General fund Short term Require installation of multi-use trails consistent with the Greensburg trail plan for new development Plan Commission City Council Trail group General fund Medium term Page 9-11

80 Provide assistance in promoting the Catch-a-Ride program to ensure adequate transportation access as the population ages Tourism Board Downtown organizations Chamber of Commerce General fund Short term Include trails and/or sidewalks in new road design and redesign/expansion of existing roads City Street Department Plan Commission City Council General fund TE program Local Road and Street (LRS) revenue Parks & Recreation fund DNR Recreational Trails Grant Short term Acquire or secure donation of right of way as needed for development of a sidewalks and trail network Trail organization TE program LRS revenue DNR Recreational Trails Grant General fund Short term Page 9-12

81 Develop a theme and related signage for trails identified in the trail plan Trail organization Medium term Tourism Board TE program Goal: Create and maintain an interconnected thoroughfare network for the efficient movement of people, goods and services. Study and identify desired improvements related to at-grade railroad crossings for emergency equipment Fire Department Police Department Street Department TE program CFF Planning Grant TIF revenue Short term Implement a corridor enhancement project for Freeland Road TIF Board Short term Plan Commission City Council Chamber of Commerce TIF revenue Engage in feasibility studies for an eastern connector. Chamber of Commerce EDC State funding Local Road and Street funds Medium- Long term Page 9-13

82 Goal: Employ the principles of access management and the use of architectural design and site development standards to reduce congestion, increase pedestrian activity and enhance the identity of major corridors. Recommend traffic calming devices in appropriate locations (such as crosswalks to schools, parks, or open space or long straight stretches of road) during preliminary subdivision review Plan Commission NA Short term Revise subdivision control ordinance to require shared driveways and parking lots and frontage roads along arterials Plan Commission City Council General fund Short term Revise the zoning ordinance to permit the reduction of parking requirements for commercial uses with pedestrian connections to residential areas or other adjacent commercial uses to promote shared parking, reduce congestion, air and water pollution, and the amount of impervious pavement surfaces Plan Commission City Council General fund Short term Page 9-14

83 Revise subdivision control ordinance to require street and sidewalk stubs in new subdivisions wherever appropriate Plan Commission City Council General fund Short term Encourage new subdivision streets to be designed on a grid pattern (but respecting topography) to promote connectivity Plan Commission City Council NA Short term Public Facilities Goal: Develop and rehabilitate public facilities as community focal points that reflect the identity and quality of life in the city of Greensburg. Develop an identifiable, unified signage system for the city and its facilities City Council Chamber of Commerce Tourism Board Downtown Organizations TIF Board TE program TIF revenue Short term Page 9-15

84 Include landscape improvements to public spaces in the capital improvements plan City Council General fund Short term Goal: Build and maintain practical, functional and well-located public facilities and spaces within the community. Conduct a feasibility study for building a new fire station south of the railroad tracks to serve the south end of the city without interruption caused by increased rail traffic Fire Department City Council Mayor Washington Township Trustee General fund CFF Grant Short term Develop a utility master plan that is consistent with the future land use plan Plan Commission City Council Water Department Sewer Department General fund CFF Planning Grant Short term Page 9-16

85 Restrict development in the floodplain and other environmentally sensitive areas Plan Commission City Council General fund Short term Design a trail system that incorporates schools, parks, downtown, and public facilities as destinations Trail group Downtown organizations Parks & Recreation City Council DNR Recreational Trails Grant CFF Planning Grant Short term Revise the zoning ordinance to provide density bonuses for the provision of open space, protection of environmentally sensitive areas, unique natural features, and mature trees in new subdivisions Plan Commission City Council General fund Short term Page 9-17

86 Goal: Design public facilities to reflect the values of the city of Greensburg, including tradition, practicality, safety, and a forward thinking approach to the growth of the overall community. Consider the context, location, and function of public buildings in their design City City Council Design Review Board Board of Works NA Short term Adopt criteria for the location and character of public buildings City Short term City Council Design Review Board Board of Works NA Develop an identifiable, unified signage system for the city and its facilities Downtown organizations City Council Chamber of Commerce Tourism Board TIF Board General fund Downtown organizations Foundation, private Short term Page 9-18

87 Facilitate discussions with public and non-profit social service organizations to provide a one-stop shop to provide efficient delivery of services City County State agencies Chamber of Commerce NA Medium term Programs and Tools Historic Preservation Historic preservation programs can include listing of structures or districts on the state or national register, establishment of a local historic district, imposing a historic area overlay zoning district, or programs to assist the owners of historic properties with renovation and preservation. Listing on the state or national register of historic places does not necessarily protect historic structures from any actions other than those of the federal government or projects that are federally funded. Local ordinances are needed to impose standards for renovation in historic areas or of historic properties. Historic Landmarks of Indiana is an organization that assists communities and property owners in preserving historic structures. The Historic Landmarks Foundation of Indiana has a grant program to assist local preservation organizations with organizational development and fundraising, architectural and engineering feasibility studies, and preservation consulting services. Grant can fund up to 80% of the total cost of a project or $2,500 whichever is less. 4:1 matching grant program (20% local match). Historic Landmarks Foundation of Indiana 340 W. Michigan Street Indianapolis, IN / Trails Trails provide a transportation alternative as well as a recreational facility in many communities. Some trail systems are local to a specific community, while others contribute to a regional or national trail system. Many trails have been developed along abandoned rail corridors (rails-totrails), but many local systems are being integrated into the design of new roadways and retrofitted into existing roadways to provide transportation alternatives. Two of the programs that can assist with the development of trail systems are the Recreational Trails Program from the Indiana Page 9-19

88 Department of Natural Resources, Division of Outdoor Recreation and the Transportation Enhancements (TE) Program through the Indiana Department of Transportation, Division of Multi-Modal Transportation. The Recreational Trails Program is matching assistance (20% match for communities) for the acquisition and development of trails. Other state and federal funds may be used for the match. Indiana Department of Natural Resources, Division of Outdoor Recreation 402 W Washington Street, Room W271 Indianapolis, IN / The Transportation Enhancements Program is a cost reimbursement grant program with a 20 percent local match requirement. A range of activities related to transportation are eligible for the program. INDOT, Division of Multi-Modal Transportation 100 N. Senate, Room 901 Indianapolis, IN / Transit The Catch-a-Ride system in Greensburg is an example of a demandresponsive transit system. These systems are critical to meet the transportation needs of the disabled and the elderly, who are primarily served by such services. Two of the grant programs that may be able to provide assistance to the Catch-a-Ride system are the Capital, Operating, and Intercity Bus Assistance for Small Urban and Rural Areas grants and the Public Mass Transportation Fund grant. Both grants are through the Indiana Department of Transportation. Indiana Department of Transportation 100 North Senate Ave., Room N901 Indianapolis, IN / Zoning Zoning is the primary implementation tool for the comprehensive plan. It is the means of legislatively determining the location, quality, and quantity of new development. The zoning ordinance is legally enforceable. The zoning ordinance should be updated following the adoption of the comprehensive plan to ensure contiguity between the two documents and encourage implementation of the comprehensive plan. Subdivision Control Like zoning, the subdivision control ordinance is a legislatively adopted, enforceable, means of implementing the comprehensive plan. The subdivision control ordinance establishes the circumstances under which Page 9-20

89 the division of existing parcels may occur and establishes the process for creating new parcels. The subdivision control ordinance should also be updated when the zoning ordinance is updated. Annexation Annexation is the process where the city brings land that was previously unincorporated into the community s corporate limits. It is one of the ways that cities grow. Under Indiana code, areas contiguous to the municipal boundary may be annexed through a voluntary process in which the property owners petition for annexation or through a municipally initiated involuntary process. An annexation strategy ensures that a community maintains the tax base and revenues created by new development in areas that are served by and benefit from municipal services such as water, sewer, roads, and emergency services. Capital Improvements Planning Capital Improvements Plans are a system of documenting the capital investments that a jurisdiction plans on making over the next five years. These plans identify projects, timelines, estimated costs, and funding sources and are linked to the budget process. They are a means of planning ahead for capital improvements and ensuring implementation of specific projects by connecting them more closely to the budget process. Economic Development Income Tax (EDIT) The county economic development income tax (CEDIT or EDIT) is a form of income tax that may be imposed by counties at a rate of up to 0.5% of the gross income of county tax payers. Revenues are distributed to adopting counties and the municipalities in those counties and may be used as a source of funding for economic development projects. The definition of economic development projects is established in the statutes, but is rather broad. Decatur County currently collects the county economic development income tax. Tax Abatement Tax abatement is a phase-in of property taxes that is designed to encourage development in areas that would not otherwise develop. Tax abatement is one of the tools widely used by municipal governments to attract new businesses to the community, or to encourage investment in new equipment or facilities that will improve the company the community economy. Communities may develop procedures for abatement application and policies on the amount and length of the abatement that will be approved Page 9-21

90 and procedures to ensure compliance with the terms of the statement of benefits. Tax Increment Finance (TIF) Tax increment finance is a tool for municipalities and counties to designate targeted areas for redevelopment or economic development through a local redevelopment commission. Those redevelopment or economic development areas can then be designated as allocation areas which triggers the TIF tool. When TIF is triggered, the property taxes generated from new construction in the area are set aside and reinvested in the area to promote development, rather than going to the normal taxing units (governments, schools, etc.). The taxing units do not lose revenue, they simply do not receive revenue from the additional assessed valuation that would not have occurred but for the reinvestment in the area through the TIF proceeds. Page 9-22

91 CHAPTER 10 PUBLIC INPUT Introduction To assure that the community has a voice in answering the question, Where do we want to go? the City of Greensburg comprehensive planning process includes a significant amount of public input and discussion to make the plan appropriate for the community and able to be implemented. The input has been gathered in several forums, ranging from key person interviews to public workshops. Each of the input techniques used and a summary of the results are included in this chapter. Key Person Interviews Key person interviews were conducted with twelve individuals on August 22 and 23, 2006 at the Decatur County Courthouse. These interviews were fairly informal discussions between the person being interviewed and the interviewer. The purpose of the interviews was for the consulting team to gather information on the challenges and future of the Greensburg community from citizens of the local community. Highlights from these discussions include: New Development at edge of city/millhousen Rd. (res.) and at Park Rd. (res.) and 74/421/3 triangle (comm.) in process of accepting Montgomery into city, also Smith Rd. and Sunset streets dedicated upon annexation (signage and street lights, city has inspection/standards) Downtown Greensburg Corridor Boundaries o West Ireland, East Lincoln, South RR, North First Broadway main corridor to Downtown Studies or other interests Main Street Program - Hyett Palma Study (mayor s office) DGDC promo and Elm Street Program interest Opportunities Wireless Broadband Engineering on downtown buildings Design Plan facades, signs, etc. (Hott City has grant pool, but matching funds are hard to find) Consider downtown as part of infrastructure in TIF Abatement for improvement Challenges Organizations/Roles (fair treatment) Cost prohibitive to rehab, needs to be economically viable Downtown is low on priority list of city and county, needs more support Page 10-1

92 Current State Quality shoe store Restaurants Hotel/Convention Center/Tourism Dept. (tourism currently in good shape) Unique Shops (services oriented) Needs Downtown publication Compiled list of downtown customers for use in meetings Building repair as a group to get economy of scale Developing identity Transportation Airport expansion (lost federal and state grants for improvements), current site limited to 6400 ft. runway Hillenbrand, Batesville, and Lawrenceburg interested in regional airport Interurban rail, through the state, could be viable, stop in Greensburg Road Would like interchange at base road, alleviate congestion Needs Flashing lights and gates (lights need to be upgraded) 10mph, loose spikes widening - grant for Vandelia from 421 and bridge (county owns bridge) Access mgmt. Lincoln Street Garage space have 2@42x60 plus 42x120, next ten years needs to be doubled Additional staff Clear brush from waterways and creeks Dead animal removal Snow removal Garbage collection (residential/small biz) Mowing (right of way, abandoned properties, neglected rentals) Current state Staff of 12 Only 2 private roads Stewart and off Sycamore Run City standards before can start houses No plan for street rehab responsive to need for rehab no relocations Street department facilities are maxed out (garages and some outdoor space) Equipment o 5 dump trucks, 1 back hoe, 1 hot box, 2 flat beds, 3 pick up trucks, 1 street sweeper, grass mowing clippers, 2 trucks also do garbage pick-up Page 10-2

93 Traffic Negatives Congestion in Greensburg when factories change shifts (signal coordination) No all day congestion Accident areas Bad sight distances Water and Wastewater Industry and new development Not in City (pre-treatment) Delta Faucet, KB (food processing), KS Bearings Honda will be on pre-treatment. Have asked for regulation Small towns (Adams, Burney, Milford) have had problems Challenges CAFO proposed near Letts concerns about wastewater South with topography and pumping issues West (will come anyway, needs regional lift) East (will need regional lift station), can pump across Easy North and East 36 through town planned Look at Need to look at Ohio St. lift station Broadway as divider Keep WWTP involved in dev. Process capital improvements planning Decatur Co. School had looked at consolidation near SR3/SR46 Current state 13 person staff at WWTP 310 per household per day IDEM standards for MF and commercial Westport has sewer district Lake McCoy small sewer plant Lake Santes has own WWTP and Water treatment North Decatur HS within sewer/water district Focus Group Meetings A single focus group met on October 2, 2006 at the Decatur County Courthouse to discuss the topics of the I-74/US 421 interchange, transportation, utilities, and annexation. The focus group meeting was facilitated by members of the consulting team. Highlights from the discussion include: Page 10-3

94 Schools The Greensburg Community School Corporation deliberately moved from a neighborhood school system to a campuslike school system in response to limited resources and economics. The new campus-like setting has the ability to allow for 1,000 additional students, which is the current capacity of the new Greensburg Elementary School. The Greensburg High School and Greensburg Junior High School have capacities of 900 and 600, respectively. This transition was aided by the fact that children of the Greensburg Community School Corporation are bused to school already, making the change in the location of the schools from neighborhoods to a campus on the eastside of the City a non-issue. AV: The value of a parcel or parcels of property to which a tax rate is applied to determine the property tax that is to be paid by the owner of that property. In the context of public school finance, assessed value or valuation is a key component in the formulas used to determine funds available for school operations and construction. When the term is used as the assessed value of the school corporation, it is referring to the total assessed value of all properties, private, commercial and industrial, located in the geographic boundaries of the school corporation. A property of higher assessed value will create a greater number of property tax dollars than a property of comparatively lower assessed value. Residential Densities Higher density residential developments tend to have a greater fiscal impact than do single-family residential developments, specifically with respect to the school system, due to a lower AV. Abatements were needed in the past in order to subsidize the development of higher density residential developments; however, this is no longer the case. Residential Growth While there is undeveloped land surrounding all side of the City of Greensburg, the undeveloped land to the south and east along E State Road 46 is believed to be less expensive than undeveloped land to the north and west. Residential development south and east is also feasible due to the absence of prime agricultural land and the presence of rural water. Institutional Growth The potential for future residential growth to the south and east is further supported by a) the creation of the Greensburg Community School Corporation Campus east of downtown Greensburg, and b) the possibility of the development of other institutional uses such as a church and/or private schools east of the City. Industrial Growth Participants of the focus group understand that additional industrial uses will undoubtedly locate in the same general location as the Honda Plant currently under construction northwest of Downtown Greensburg. However, it is understood that the current water supply lowers the capacity for additional industrial growth north of Honda. Participants of the focus group determined that the most likely industrial uses will be light to heavy industrial and heavy commercial focusing on business to business trade rather than business to consumer trade, or retail trade. Page 10-4

95 It was further expressed that said industrial growth would also be dependent on any future improvements to both the County s, not just the City s, transportation network; specifically, the extension of County Road 250 west of the incorporated area of the City of Greensburg. Parks and Recreation The City of Greensburg is currently void of any substantial parks and recreation network, specifically with respect to trails and sidewalks, as the City s existing sidewalks are old and deteriorating. Many of the communities amenities, such as schools, library, downtown, city pool, ball diamonds, and other existing parks, are cut off from one another, and in some instances, a network safe for bicyclists and pedestrians. Participants of the focus group felt it was necessary to provide for parks and recreational facilities, specifically a bike and pedestrian network, to be located along existing riparian corridors connecting both residential and commercial uses, in the near future. It was further recommended by participants of the focus group to amend the City s Subdivision Control Ordinance to require future developments to the City s bike and pedestrian system(s). Downtown Greensburg Participants of the focus group envision Downtown Greensburg as a center for government, finance, professional offices, local business, specialty retail, and second-story/live-work, residential uses. Transportation Participants of the focus group discussion expressed a need for an east-west connection north of Downtown Greensburg and various other improvements, including road extensions, in and around the City of Greensburg. Roads that need improved include: Lincoln Street (improvements); 1 st Street (improvements); 4 th Street (improvements); US Hwy 421 (improvements); Freeland Road (improvement and extension); County Road 250 (improvement and extension); and The creation of a southeast by-pass (design and construction). More importantly, a real threat to public safety exists with respect to the City s existing transportation network as it relates to: the location of emergency facilities; the location of existing and future residential development; the presence of the Central of Indiana Railway; and the present condition of the roads and bridges used to access said residential areas. Participants of the focus group recommend, in addition to road and bridge improvements and the creation of multiple access routes, the construction of a emergency response facility, Community Gateway: an architectural feature and/or landscaping that signifies a transition between one space and another. Streetscaping, signage regulations, and design guidelines reinforce the presence of a community gateway. By focusing on the use of streetscape elements the motorist, bicyclist, or pedestrian is introduced to the area in which they are about to enter, conveying a sense of place and/or purpose independent of the rest of the community. complete with fire personnel and equipment, as well as ambulance personnel and equipment. Page 10-5

96 Refer to the future land use map for the identification of other transportation network improvements, including the possible location of community gateways. Steering Committee A Steering Committee of 10 members was appointed to be the liaison between the consulting team and the community. This committee met jointly with the Decatur County Comprehensive Plan Steering Committee early in the process to ensure compatibility between the two processes. The first joint Steering Committee meeting was held on September 24, 2006 at the Decatur County Courthouse. The purpose of this meeting was to introduce the process to the committee, to share preliminary data findings, and to begin soliciting input from the committee. The exercise conducted asked the steering committee members to select ten words or phrases from the worksheet that they would like to see in Greensburg in the future and also to select five words or phrases that they would not like to see in the city. The results are below: Top ten words or phrases respondents would like to see: 1. Walkable neighborhoods 2. Colleges/Universities 3. Bikeways/Trails 4. Historic preservation 5. Landscaped corridors 6. Public transportation 7. City/town center/downtown 8. Calm neighborhood streets 9. Farmers Market 10. Parking garages Top five works or phrases respondents would not like to see: 1. Adult-oriented entertainment/business 2. Mobile home communities 3. Confined feeding operations 4. Cul-de-sacs 5. Manufactured housing Public Meetings Gathering input from the public early in the process is critical to the success of a comprehensive plan. For the Decatur County Comprehensive Plan, two of these early workshops were held to solicit input from the community and raise awareness of the planning process. Strong Positive The first of these workshops was held on October 10, 2006 at the Greensburg City Hall, where 29 people attended the meeting. The workshop consisted of a brief presentation by the consulting team about comprehensive planning and planning trends and a series of three exercises to solicit input about the city s future. Mild Positive Neutral Mild Negative Strong Negative The first exercise was an Image Preference Survey where participants were shown 20 different images of community features and asked to rank them from Page 10-6

97 -5 (strongly negative) to +5 (strongly positive). The images, their ranking, and comments on the images are below: Image Number Average Rating Comments Image Atmosphere/characte r - Commercial and public -Architecture is pathetic/too trendy - Cold, No grass, shrubs, or trees - Like little trendy, cost from development standard point - Depending on location -Looks congested - Cold/uninviting - Underutilized parking lot - Like numerous mix of shops - Like architecture of True Value - Nice place to be - Add to beauty of town - Older neighborhood - Upscale homes, lost of acreage, showplace - Nice big lots - McMansions - Fire Nightmare - Manufacturing beyond parking, need to make sacrifices. - Need to make a positive area to come to work (trees, flowers, etc.) - Washington, Nat l Airport has nice parking. Page 10-7

98 Image Number Average Rating Comments - Piled on top of each other - Looks manufactured - Reminiscent of Nashville shopping - Good use of land - Fitness, don t have any trails now - Rail overpass - different routes - Been looking for this. Image Good land use - Architecture - Realm cool Streetlights, benches, greenery is good - Multi-story - Wide sidewalks - Materials - Well-lit - Good signage and banners - low-level signage is attractive - Landscaping is coordinated. - Background, overclipped shrubs - Bike path, alternative transportation - Bike path on road is a hazard - Too much, too close together. - Cookie Cutter, Monopoly Set - Safety hazard - Desperate Housewives Page 10-8

99 Image Number Average Rating Comments - All age rec. area in residential area - Neat landscaping around, wellmaintained. - Design isn t good. -Big sea of concrete - Depending on location, a place to go - Looks like Lincoln Street. - Too congestive, nightmarish - Cold, uninviting, not user-friendly - People going through town - Not designed with pedestrians in mind - Good night lighting - Clean - Outdoor dining/nice place for a drink - Public place to sit - Sidewalk material nice. -Trees - Don t like housing next to agriculture. - There are no trees - Attempt at low density housing - Block off community - Like large lots - Like cul-de-sacs, safe for kids Image Looks like older buildings/rehab - amenities Page 10-9

100 Don t like potted trees - Nice flowers/landscaping - Place for pedestrians with no cars - Planters give privacy - Not good interactive space -Terracing effect looks larger A second exercise, the community identity exercise, asked participants to review ten images that could be used as identity pieces for the county and rank their top three. The results were as follows: Top 3 Responses: Tree City Home of the Tower Tree (21) Small Town Charm (18) Historic Homes in Historic Neighborhoods (13) Remaining Responses: Title Number of Responses Image Future Home of Honda 9 Celebrating Local History and Culture 8 Regional Shopping Destination 7 Page 10-10

101 Title Number of Responses Image Festivals on the Square 5 Seat of Local Government 4 Recreation 3 Home of Agricultural Business 2 The third exercise participants were asked to complete was to consider the quantity and location of growth. Participants were asked to place dots representing residential, commercial, industrial, and other development on a map of the city and to use markers to indicate new roads, road widening, or other needed road improvements. The minimum amount of growth that they were asked to place was based on the baseline population projections for the city for The maximum amount of growth was based on an aggressive projection of the 2030 population based on the impact of Honda s location in the county. The maps that resulted from the exercise were used to build the development scenarios considered to form the future land use map. Page 10-11

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