Greenfield Comprehensive plan · One draft plan was created and refinedwith a strong consideration for community and ... These conclusions are intuitive – having a population spread

GreenfieldComprehensiveplan

a Traditional american City

i

Greenfield Comprehensive Plan - 2006a Traditional american City

Table of Contents

Chapter One: Introduction

1-1 Introduction

1-1 Purposeof thePlan

1-2 Statementof CompliancewithStateLaw

1-3 PlanProcess

Chapter Two: Major Themes and Principles

2-1 PlanningPrinciples

2-3 TraditionalAmericanCity

2-4 Greenfield:TheModelforaTraditionalAmericanCity

Chapter Three: Goals, Policies, and Action Steps

3-1 Introduction

3-1 HighQualityof Life

Chapter Four: Community Development Plan

4-1 SectionTitle

4-2 SectionTitle

Chapter Five: Implementation

5-1 SectionTitle

5-2 SectionTitle

Appendix A: Existing Conditions

A-1 SectionTitle

A-2 SectionTitle

Appendix B: Greenfield Downtown Plan

B-1 SectionTitle

B-2 SectionTitle

Appendix C: Greenfield Thoroughfare Plan

C-1 SectionTitle

ii

Contents

C-2 SectionTitle

Appendix D: Greenfield Parks Plan

D-1 SectionTitle

D-2 SectionTitle

Appendix E: Greenfield Annexation Strategy

E-1 SectionTitle

E-2 SectionTitle

ChapTer 1: inTroduCTion


1-1


IntroductionTheCity of Greenfield is in a unique positionwith its location on I-70 and 40minute drive from Indianapolis, Indiana. Over the past ten years Greenfield’sgrowthhassteadilyincreased.AsIndianapolis’developmentcontinuestoapproachGreenfield, theneedforanupdatedplanningdirectionbecamemoreapparent totheleadershipof Greenfield.

TheGreenfieldComprehensivePlanisaguidancedocumentthatwillhelptodirectfuturegrowthanddevelopment intheCityof Greenfield. ThePlanoutlinesthevision and concepts for theGreenfield PlanningArea, through clearly expressedgoals,objectivesandpoliciesthatweredirectlyarticulatedbythesteeringcommitteeandpublic.ThePlanestablishesthecommunity’slongterm,twentyyearvisionforgrowthanddevelopment.Itisnotzoningoranyotherregulatorydocument.Itisalegislativepolicydocument;anofficialstatementof policyfordecisionmakingbythePlanCommissionandCityCouncilindecidingprivatedevelopmentprojectionsand in determiningCity expenditures for transportation, infrastructure, drainage,andrecreationandparks.

TheGreenfieldPlanningAreaconsistsof theareabetween200Westand500East,and500Northand300South,andincludestheincorporatedCityof Greenfield.

Purpose of the PlanInanefforttoplanforthelocationof growthandtheimpactof thatgrowthontransportation,utility,fireandpoliceservices,parksandrecreationandtheestab-lishedcharacterof theCity,theCityof Greenfieldhasundertakenthisupdateof the1997ComprehensivePlan.Thisplanningeffortisadirectresultof theincreaseinsuburbanizationof theCityof Greenfieldduetotheapprovalof asignificantnumberof housingdevelopments.ThesedevelopmentsaregreatlyimpactingCityservicesandrequiringthattheCityupdateitsutilitymasterplanandtransportationplan,whileprovidingformoreregionalcommercialareas,expandinganddiversify-ing employment areas and solidifying park and trail connectionswithin this newdevelopmentandtheCityasawhole.ThisupdatewillmakeitpossiblefortheCityof Greenfieldtomanagethequality,quantityandlocationof itsfuturegrowthanddevelopment. Onlywith thecompletionof theComprehensivePlanupdate canGreenfieldensure that futuregrowthwillprovideahigherstandardof qualityof lifeforallthecitizensinthecommunity.

The development potential presented in Chapter Two, Existing Conditions hasbeencoordinatedwiththeFutureCommunityDevelopmentPlanMap.TheFutureCommunityDevelopmentPlanMapevaluatesthepotentialfuturelanduseoptionsinthecontextof futureneeds intheGreenfieldareaand identifiesgeneral trans-portationandparkandtrailinfrastructureimprovementsnecessarytosupportthoselandusechanges.Thedevelopmentof theFutureCommunityDevelopmentPlanMapshouldpositionGreenfieldeffectivelytoplanforitsfutureneedsandprovideguidance to various public planning and private development activities underwaynowandinthefuture.

Thefirststepinthedevelopmentof theFutureCommunityDevelopmentPlanwasto explore theCity and itsplanning areawith a thorough inventory and analysis.Inventoriesandmappingwereutilizedtohelpdetermineallpossibleopportunitiesandconstraintsfordevelopment.Thefindingsof theexistingconditionshavebeen

1-2

Chapter 1: Introduction

utilizedasabasisforthedevelopmentof theCommunityDevelopmentPlan.Onedraftplanwascreatedandrefinedwithastrongconsiderationforcommunityandinfrastructure needs. This Comprehensive Plan documents the planning processandprovidesanin-depthlookattheFutureCommunityDevelopmentPlanMap.

Statement of Compliance with State LawWhile the comprehensive planning process is an activity primarily undertakenbylocalgovernment, theStateof Indianahasestablishedspecifiedstandardsforthepurpose and content of theComprehensivePlan in state legislature that enableslocalunitsof governmenttoundertakeplanning.Communitiesmayadoptcompre-hensivesplans“forthepromotionof publichealth,safetyandmorals,convenience,order, or the generalwelfare and for the sake of efficiency and economy in theprocessof development”(I.C.36-7-4-501).

IndianaCode36-7-4-500seriessetsforththestandardsfordevelopingandevaluat-ingacomprehensiveplan.Requiredelementsof acomprehensiveplaninclude(I.C.36-7-4-502):

• Astatementof objectivesforthefuturedevelopmentof the jurisdiction;

• Astatementof policyforthelandusedevelopmentof the jurisdiction;and

• Astatementof policyforthedevelopmentof publicways, publicspaces,publiclands,publicstructures,andpublicutilities.

• Thevisionstatementandgoalsandobjectives,meetthe criteriaof establishingobjectivesforthefuturedevelopmentof theCityof Greenfield.Chapterxx,Implementation,establishes policiesforlandusewithintheCity’sjurisdiction.

• Specificcapitalimprovementplansarenotsetforthinthis planastheGreenfieldAdvisoryPlanCommissiondoesnot havediscretionovercapitalbudgets.

Plan ProcessWhenplanningfuturedevelopmentfortheCity,aspecificsetof goalsandobjec-tivesallowsforacleardeterminationof thevisionof thecommunity.Thecompre-hensiveplanningprocessconsistedof fivetasks:

• Initiation

• Inventoryof ExistingConditions

• CommunityDevelopmentPlanDevelopment

• Refinementof Plan

• Adoption

1-3


ThisPageIntentionallyLeftBlank

ChapTer 2: major Themes and prinCiples


2-1


Planning PrinciplesLanduseplanning,evenatthelocallevel,canhaveseriousimplicationsonthefiscalhealthof bothCityandCountygovernmentsand their ability toprovideutilitiesandothersocialservicestotheircitizens.Overtheyears,variousgrowthmanage-mentstudieshaveshownthatscatteredpatternsof low-densitydevelopment(a.k.a.sprawl)oftenresultsinaninefficientdeliveryof capital(i.e.roadsandutilities)andnon-capital (i.e. fire and police protection) services resulting in higher costs fordeliveringsaidpublicservices,andthuscreatinginequitablepatternsof costingoutinfrastructure.

Morecompactdevelopmentpatternsalsohavebenefitsforresidents.Theseben-efitsofteninclude:lowertransportationcosts;fasterresponsetimesforemergencyservices(policy,fireandmedical);andgreaterconveniencewithrespecttoshoppingandemploymentareas.Theseconclusionsareintuitive–havingapopulationspreadoutoveralargerarearesultsinmoreroadways,pipesandvehiclemilestraveled,thendoeshavingthatsamepopulationwithinasmallerarea.

Indevelopingacomprehensiveplan,therearethreeareasinwhichgrowthcanbemanaged.Thecomprehensiveplancandefinethequantityof growthbydetermin-ingtheamounttheCityshouldplanfor.ThePlancandefinethequalityof growthbyindicatingspecificgrowthstandards.Lastly,thePlancandefinethelocationof growthwhichfocusesonwhereintheCitycertaingrowthwilloccur.

OnJune14,2005,theSteeringCommitteewasaskedtodefineGreenfield’sgrowthphilosophy.Thephilosophywasbrokendownintofourareasincludingquantityof growth,qualityof growthandlocationof growthandimplementationof growth.

Thesteeringcommitteewouldliketoencouragehigherquantitiesof growth;how-ever,theywouldlikeforthatgrowthtobemanageablesothatitisof theappropri-atequalityandintheappropriatelocation.Withrespecttothequantityof housing,the Steering Committee felt that housing types should bemoderately controlledso thatone typedoesnotdominate the landscape. The steering committee alsobelievesthatalltypesshouldbeavailabletoallresidentsinGreenfieldtoallowforagrowingandmulti-generationalpopulation.

Regarding the quality of growth, the steering committee rated the current Citylandscapestandardsbelowpar.Corridordevelopmentshouldbeheldtoahigherstandardincludingstandardsforlightingandarchitecture,andtheuseof aconsis-tent theme. Architectural standards shouldbe enhanced forboth residential andnon-residentialuses.Finally,thehistoricdistrictshouldbepreservedasakeypartof thedowntown.

Astrongadherencetoprinciplesof locationbasedonplannedgrowthtypesratherthanonmarketforcesisdesiredformanagingthelocationof growthinGreenfield.Additionallytheplanshouldbestructuredtoindicateadesiredtargetedlocationof growth.

Thesephilosophiescanbesummarizedinto3concepts:

1.ManagedQuantityof Growth;

2.HighQualityof Growth;and

3.PlannedLocationsof Growth.

2-2

Chapter 2: Major Themes and Principles

Overthepast40years,growthfromtheIndianapolisareahasexpandedoutfromtheCity’scoreintothemetroregion.In1960,thegrowthof IndianapoliswascontainedinMarionCounty.By1980,growthhasexpandedintothesuburbsof IndianapolisintoHamiltonCountyandJohnsonCounty.Bytheearly2000’s,growthhadbeguntosuburbanizeintotheremainingsurroundingcounties.WhyisthisimportanttoGreenfield?WhileIndianapolis’growthhasyettoreachtheGreenfieldCitylimits,themetroareacontinuestodevelopandoverthenextseveraldecades,Greenfieldwillfinditself inclosephysicalproximitytotheCityof Indianapolis.

In specifically reviewing the land use growth for the City of Greenfield, mostgrowthhasbeenconsistentwiththeCity’scurrentComprehensivePlan;however,asdemonstratedinFigurexx,therehasbeensomegrowththathasnotbeenconsistentwiththe1997FutureLandUsePlan.Thisfigurealsoindicatessomeof thesubur-banizationthathasalsobeguntooccuroutsidetheGreenfieldcitylimits.

Overthelasttenyears,Greenfieldhasbecomeatargetedareaforsuburbangrowth.Somuch so thatGreenfield’s corporateboundaryhasgrown significantly in landarea-fromapproximately3,500acresin1997toapproximately6,500acresinearly2005.

FuturegrowthprojectionscontinuetoremainstrongasGreenfieldisquicklybecom-ingahot-spotforsuburbandevelopment. Ithasbeenprojectedthat, inthenext20years,Greenfield’stotalpopulationwillalmostdouble.Therefore,another2,740acresof residentialunitsisneededtosupportthisgrowth.Thisadditionalacreageaccounts for approved residential subdivisionswhichmay not have even brokengroundyet.Usingthesamepopulationprojection,another530acresisneededforcommercial uses and aprojected600 to700 acresof industrial landuseswill beneededaswell.However,afterreviewingdesiredtrendsforthecommunityagainstthecurrentandprojectedgrowthtrends, thereare inconsistencieswithrespect tohowtheCityhasdevelopedoutinthelasttentofifteenyears.

ThecurrentgrowthtrendsinGreenfieldshowgrowthcontinuingtomovefurtherandfurtherawayfromtheCity’score.Developmentpatternshaveshiftedawayfromthetraditionalorganizationof Greenfield’sneighborhoodgridtowardsaseriesof disconnectedandisolatedcul-de-sacdevelopments.Stripdevelopmenthascontin-uedtoconsumetheCity’smajorgatesof StateRoad9andUS40andthis“strip-ping”of thelandisdecentralizingtheDowntowncore.Mostimportantly,themostrecent developments are of the “anywhere” type development, such as the CVSpharmacyandHomeDepot,thatsaysnothingabouttheheritageandcommunityvaluesthatGreenfieldisknownfor.

If these types of trends continue, Greenfield’s unique identity and small-towncharmwillbediminishedas itsnewestdevelopmentstransformtheCity into justanothersuburbanIndianapoliscommunity.

TheCityof Greenfieldhasachoice.Theleadershipof thecommunityunderstandsthat thecurrenttrends inGreenfielddonotsupport theCity’sarticulatedgrowthdirections.TheCity’sleadershiphascommittedtousingthespecificgrowthpoliciesof thisdocumentasthemosteffectivemeanstopreserveGreenfield’shighqualityof life;topreserveGreenfieldasaTraditionalAmericanCity.

2-3


A Traditional American CityFromthe18thCenturytotheMid20thCentury,thecitywasthefocusof aregion’seconomicandsocial lifewherepeoplecametogethertoproduceandtradegoodsandservices,tomeet,andtoexchangeinformationandideas.Thedowntownwasacivicandculturalcenterandasymbolof communityidentity.Neighborhoodsweresafeandenliveningplaceswherepeoplemetandgatheredwithneighbors,childrenplayed in localparks, andwalked to and fromplaces throughout the community.Thesewereeverydayevents.

WhyisGreenfieldspecial?Greenfieldstillhasallof thesequalitiestoday.Greenfieldisveryfortunateinthatit isabletocontinuetocapitalizeandbuilduponitspastdevelopmentpatterns.PlannersandbuildersintheIndianapolisareahavebeguntorecognizethevalueintraditionaltownandneighborhoodplanningmodels,somuchsothattheyarebeginningtorecreatewhatisalreadyinherentintheGreenfieldcom-munity,inothercentralIndianacommunities;placeswhereitneverexistedorwhereithasbeendestroyed. Communitiesthataretryingtoestablishthecharacterandplanningprinciplesof theCityof Greenfieldinclude:

• TheVillageof WestClay(est.2000);

• ClayTerrace(est.2005);

• NoblesvilleHamletsatStoneyCreekPlanforWayneTownship (est.2005);

• Anson-AplannedmixedusedevelopmentalongI-65between Zionsville&Lebanon(est.2005);

• SeventyWest-Aplannedmixed-usetouristdestinationatI-70 neartheairport(est.2005);and

• Carmel

Similarly,Avon,FishersandGreenwoodareintheprocessof tryingtobuildaTownCenter/Downtown.

Manyof these communities are embarkingon themodern-day revival of a 19thcenturyvillagecapitalizingonatraditionalsmalltownlifewhereneighborsvisitedwithoneanotherfromtheirfrontporches,wheretherewasarchitecturalvarietyineachbuilding,wherebuildingfacadesweresetclosertothestreet,withtree-linedstreetscapes,streetfurniture,villagegreensandwaterfeatures.Whileothersubur-bancommunitiesof Indianapolisarebusyduplicatingand/orreplicatingthepast,Greenfieldneedsonlytobuilduponitspast.ThisgivestheCityof Greenfieldhigh-lycompetitiveedgeoverothersuburbancommunitiesof Indianapolis.Therefore,itisrecommendedthattheCitycreatepoliciesto:preserve,protectandrediscoveritspast.

Greenfield’srichheritageprovidesaplacewherepeoplecontinuetogather,conductbusiness,shop,live.Itstraditionalurbancharacteristicsandsmall-towncharm,stillintactafteralltheseyears,arewhatmakesGreenfieldsospecial.

2-4

Chapter 2: Major Themes and Principles

Greenfield: The Model for a Traditional American CityWhenexaminingGreenfield’spastdevelopmenttrends,thereisadistinctmodelthatcanbeidentified.DevelopmenttrendsuniquetotheCityof Greenfieldinclude:

• AstrongorganizingCitystructure;

• Aviablehistoricdowntowncore;

• Traditionalneighborhoods;and

• Greens,commonsandcommunityfacilities.

Themajorityof theCity’sstreetsweredevelopedinatraditionalgridpattern.TheCity’sgridstreetpatternhascreatedawell-definedspatialstructure,meaningthattheblocksarewalkableandthattheblocklengthspromotebothpedestriancircula-tionandaccess.Therearetremendoussidewalkandpedestrianconnectionssothatadults andchildrencanget to and from theirhomesand thevarious communityamenities such as area schools, parks, library and/or the downtown by walkingand/orridingtheirbikes.Anadditionalpartof theorganizationalstructureistheamountof regionalemployersinHancockMemorialHospital,EliLillyandIndianaPrecisionTechnology.Employersandresidentsalikehavereadyaccesstothecen-tral IndianaregionviaI-70. Interstate70servesasaman-madeboundarywhichcontainsthecommunity’sgrowthandfurtherdefinestheCity’snorthernedge.

Another strong element to the traditional model which is a tremendous asset toGreenfieldisitshistoricdowntowncore.In2004,theCitycreatedandadoptedanupdatedDowntownPlanwhichfocusedonthecoreof downtownandsomeof itsoutlying areas; furtherprotecting its identity. What is notable aboutGreenfield’sdowntown is that,as thecountyseat, theCity’sdowntown isawardedtheoppor-tunity to serveas a strong, recognizablecivicpresencewith the locationof bothCityandCountygovernmentbuildings.Thecourthousestandsasthecenterpiecetotheentiredowntown.Itisthehubof activities,includingavarietyof usesandfestivalsthatoccurinthecourthousesquare.Thedowntowncontainsadiversityof uses includingasportinggoodsstore,multipleofficeswhichsupport thegovern-mentfunctions,abank,atheaterandvariousothersmall,locallyownedretailshops.Becauseof itslocationalongUS40,whichisotherwisereferredtoastheHistoricNationalRoad,thedowntownisseenaspartof thecenterof commerce.AntiquestoretravelersoftenstopinGreenfield.

TheCityhasbeenproactivewiththemaintenanceof itshistoricbuildingsfromthebusinessbuildingslocatedindowntowntosomeof thehistorichomesontheout-skirtsof downtown.Thisrichhistoryprovidescharacterandarchitecturalharmonytothearea.TheCityhasinvestedinahistoricboardtomaintainitscharacterandhistory.

Inreviewingthetraditionallayoutof thecommunity,theneighborhoodshaveamixof housingoptionswithapartments,duplexesandsinglefamilyresidences.Inaddi-tion, there isanarchitecturalstyle that isdistinctive ineachneighborhood; this isdueinparttothegridstreetpatterndescribedearlier.Eachneighborhoodhasside-walksandsometrailconnections,connectingthemtonearbycommunityfacilitiesandcommercialestablishments.Severalof thesemaincorridorsandsidewalkshavetree-linedstreetswhichprovideneighborhoodcharacteranda friendlypedestrianenvironment. The sidewalksand thegrid street systemalsoprovideconnectionsbetweeneachof the individualneighborhoods. Theseconnectivepathspromote

2-5


continuityintravelingandsafepassageforchildrenandadultstogetthroughoutthecommunitywhetherwalking,jogging,bikingorrollerblading.

The final component that has makes the City of Greenfield a model for theTraditional American City is their location of greens, commons and communityfacilities. TheCityhaspurposelydecentralized someof it government andcivicfacilitiestoreachoutintotheCity.Thisdecentralizationof governmentalandcivicusesandfacilitieshasledtotheformationof communitynodes.Thesecommunitynodesarethemselvescentrally locatedwithinareaneighborhoods. Eachcommu-nitynodecontainsacommunity,includingbutnotlimitedto:schools,firestations,churches,parksandhospitals.Thelocationof thesecommunityfacilitiesprovidesforacentral“focal”pointandgeneralorientation. Thesecivicnodesaregearedtomeettheneedsof thecitizenryandprovideeasyaccesstocivicandcommunityfacilities.

ChapTer 3: Goals, poliCies,and aCTion sTeps


3-1


IntroductionTheCity’spastdevelopmenteffortshavebeenguidedbytheCity’sComprehensivePlan,ZoningOrdinance,PlanCommissionandCityCouncil.Asgrowthcontinuesto head towardGreenfield and as the City itself continues to develop, new andrevisedgoalsandobjectivesneedtobeestablishedtocontinuetoprotectGreenfield’straditionalcommunityandpreservetheCity’scharactersothatisdoesn’tlookandbecomelikeeveryotherIndianapolissuburbancommunity.

Thefollowinggoals,policiesandactionstepshavebeencreatedforthepurposeof protectingandpreservingtheCityof Greenfield’suniquecharacter.Someof thefollowinggoalsarenew,whileothersaregoalsthatwereestablishedduringpreviouscomprehensiveplanningefforts.Regardless,eachgoalhasbeendevelopedand/orrevisedforthepurposeof makingtheCityof Greenfield’svisionareality.

High Quality of LifeTheCityof Greenfieldhasstrivedtomakeitself differentfromotherIndianapolissuburbancommunitiesbyensuringthatallof theCity’sservices(i.e.publicsewerandwater topoliceandfireprotectionandparksandadministrativefacilities)areprovidedtotheitsresidentsatalevelthatisnotabletobecompromisedregard-lessof thefuturegrowthof thecommunity.Inadditiontothecity’sservices,thecommunity’sschoolsystemhasconsistentlyprovidedqualityeducationtoresidentswhichisinlargepartwhyfutureresidentsandbusinessesareattractedtothecom-munity. As a result,Greenfield’sworkforce has become plentiful, and theCity’soverallqualityof lifeisincreasing.

TheCityof Greenfieldstrivestocontinuethishighqualityof lifeforitsresidentsandfurtherseparateitself fromothersuburbancommunities.Therefore,onegoalof thisplanistoprovidestepstokeepthelevelof servicesinlinewiththegrowthtoensurethatthequalityof lifecontinuestoremainhigh.

Goal 1: Preserve Greenfield’s high quality of life, in view of expected growth pressures from the City of Indianapolis.

Policy 1: Remain Consistent with both this Plan and the Future Community Development Plan Map

When members of the City Council, Plan Commission or theCity’sstaff reviewproposeddevelopments,theyshallensurethat theproposeddevelopment is consistentwithboth the typeandnatureof developmentdesiredbythecommunityasitisde-pictedthroughoutthisplan,andtheFutureCommunityDevelop-mentPlanMap.

Policy 2: Limit the Amount of Growth to the North of the City

Keepingwiththecompactnatureof theCity,growthtothenorthshouldbelimiteduntilthecentercorehasfullydevelopedandtheextensionof utilitiesislogical.TheCitymaydothisbydesignat-ingtheareasnorthof theCityasagriculturalareaswhichwillre-servetheareasnorthof thecityuntiltheCityisabletogrowintoit.

3-2

Chapter 3: Goals, Policies, and Action Steps

Policy 3: Ensure that Community Facilities are accessible to every resident.

TheCityof Greenfieldhastakenstepsinthepasttolocatecom-munity, or civic, facilities throughout its community in order toprovide every resident with access to a higher quality of life.Therefore,communitynodesshouldbelocatedwithinevery1,000dwellingunitstocontinuetopromotestrongneighborhoodsandmaintain access to community services. Community nodes mayconsistof suchuses aspublicparks, schools, churches, andfirestations.

Policy 4: Coordination with Other Jurisdictions TheCityisunabletomanagethelandoutsideitsjurisdictionorthe

transportationimprovementstomajorstateorUSthoroughfares.Therefore,theCityshouldcoordinatewiththeCountyandotherstateand/orregionalagenciestoensurecontinuityandconsistencyof overalldevelopmentactivities.

Policy 5: Development Should Pay its Own Way The City has managed to remain relativity compact. There are

severalareaswithintheCitythathaveexistingservices,upgradedroads, utilities and enough land to accommodate infill develop-ment. Theseexistingareasprovideanopportunity fordevelop-ment tominimize itsowncosts. If development shouldbeap-proved to build outside the 15 and 30 year growth boundariesbeforethecentralcorehashadtheopportunitytobuildout,thenewdevelopmentmustpayforitsowninfrastructure,publicfacili-tiesandservicecostsratherthanrelyontheCitytoprovidesaidservices.

Recommended Action StepsAction 1: Annexation Strategy Inanefforttocontinuetomanageitsgrowth,itisrecommended

thattheCityadoptanannexationstrategytodirecttheextensionof futureboundaries, includingthetypeof growthdesirablefortheCity.

Action 2: Zoning of Annexed Areas ItisrecommendedthattheCitycreateregulationstobeincluded

in the City’s zoning ordinance. Such regulations should dictatehowareasoutside theCity limitsshouldbezonedfollowingan-nexationintotheCity.Thisactionstepshouldbeconsistentwiththeeffortsof Action1.above.

Action 3: Infrastructure Extension Infrastructureextensionisanimportanttoolinmanagingtheloca-

tionof growthandensuringthatitisplannedforintheCity’slongtermbudget.ItisthereforerecommendedthattheCityundergoacapitalimprovementsprocesstocreateaCapitalImprovementsPlan, includingaprocess forupdating theplan toensure that itremainscurrent.

3-3


Action 4 : Amendments to the Future Community Devel-opment Plan Map

TheFutureCommunityDevelopmentPlanMapisaguideforhow,where and when growth should occur. Any deviation from thismapisan indicationthatboththisComprehensivePlanandtheMapshouldbeamendedtoensurethatthedevelopmentplanap-provalprocessremainsconsistent.Therefore,itisrecommendedthattheCityperiodicallyreviewtheFutureCommunityDevelop-mentPlanMapforitsapplicabilitytothetypes of developmentsthatarebeingapproved.

Action 5: Seek Transportation Funding TheCityhaslimitedresourcesandnotallof theactionsof this

planwillbeabletobeimplementedatonce.Therefore,itisrec-ommendedthattheCityseekTransportationEnhancementFundsfor theproposedgatewayandcorridor improvements,especiallyforimprovementssuchaslandscaping,lighting,signageandstreetfurniture.

Action 6: Increase Code Enforcement It is recommended that the City update the code enforcement

provisionsof itszoningordinanceandprovideadequatestaff,re-sourcesandsupportforcodeenforcementthroughoutthecom-munity.

High Quality of DevelopmentOneof thekeyconcernsvoicedfromtheresidentsandmembersof thesteeringcommitteewasthatthequalityof futuredevelopmentsneedstobemanaged. Inthepast,theCityhastakensomeactions(i.e.designstandards)torequirethatpro-poseddevelopmentsbeof ahigherquality;however,asgrowthcontinuestowardGreenfield,additionalstepsareneededtomaintainthecharacterof theCitysothatitdoesn’tlooklikeeveryotherIndianapolissuburb.Thefollowinggoalwasestab-lishedtopromoteahigherqualityof developmentintheCityof Greenfield.

Goal 2: Encourage a higher quality of development for the City of Greenfield

Policy 1: Aesthetically Compatible New Development Inordertoincreasethequalityof futuredevelopments,proposed

developmentsshouldberequiredtocomplywithrelativelyhigherdesignstandards.TheCityshouldusebothdesignguidelinesandregulations fornewdevelopmentand redevelopmentprojects tocreateacompletelyfunctionalandvisuallyintegratedCityforthepurposesof maintainingandpromotingitstraditionalcharacter.

Policy 2: Adherence to Design Guidelines and Standards OncedesignstandardshavebeenidentifiedtheCitywillneedto

committousingandenforcingthem.TheCityshouldrequirenewresidential,commercialandindustrialdevelopment,includinginfilldevelopment,toadheretothenewlydevelopeddesignguidelinesandprovidealevelof enforcementtomaintainthequalityof de-velopmentinandaroundtheCityof Greenfield.

3-4


Policy 3: Enhancement of Corridors TheCity’smajorcorridorscontributetotheimageof theCityand

thussetthetonefordevelopment.TheCityshouldimprovethecharacterandappearanceof itscorridorsandgatewaysthroughstreetscaping and landscaping improvements. Streetscaping im-provementsandenhancementsshouldbedesignedforSR9,US40and70. Suchstreetscapingandlandscapingdesignstandardsshouldbeimplementedbybothpublicandprivatedevelopment.

Policy 4: Limit the Visual Impact of Parking TheCityshouldminimizetheimpactof parkingalongSR9,I-70,

US40andintheDowntown.Methodsforminimizingtheimpactof parking include shared parking, perimeter and interior land-scaping,pedestrianpathsandplacementof lotsbehindbuildings,wherepossible.

Policy 5: Residential Conversions Partof the traditional development characterof theCity is the

residentialdwellingsthathave,overtime,beenconvertedtolocalbusinessuses.ThistrendisseenprimarilyalongSR9.TheCityshouldsupport,andcreateregulationsfor,residentialconversiontoservicebasedbusinessesonlyalongSR9fromUS40toEastParkAvenue. The areas locatednorth of EastParkAvenue toMackenzieRoadhowevershouldremainasprimarilyresidential.

Policy 6: Connectivity The traditional development pattern of the community has re-

sultedintheutilizationof atraditionalgridstreetpattern,insomecasesamodifiedstreetgridpattern.Thishasprovidedaccessandconnectivity between neighborhoods and the downtown. TheCity should require “connectedness” as adesign theme fornewsubdivisionsbyrequiringthemtocontinuetheestablishedstreetlayout,andthusthecharacterof Greenfield’sneighborhoods.

Policy 7: Traditional Community Design TheCityhastakengreatcaretodefineitstraditionalcommunity

developmentpatternandensurethat it isuniquefromotherIn-dianapolisCommunities. Therefore, theCity shoulddiscouragedesign and development patterns that result in segregated landuses,“leapfrog”development,largesubdivisionsandanylackof pedestrianaccessibilityandconnectedness.

Policy 8: Coordination with Hancock County Someof Greenfield’sgrowthwillinevitablebeoutsidethepolitical

jurisdictionof itsgrowthboundary. Therefore, theCity shouldcommunicatewithHancockCounty regarding its future growthplansinanefforttoprovidethedesireddevelopmentpatternfortheCity.

Recommended Action StepsAction 1: Develop Corridor Plan ItisrecommendedthattheCitydevelopcorridorplansthatidenti-

fyspecificlanduse,enhancementsandtrafficaccessmanagementforSR9andUS40.Thesecorridorplansshouldcreateacohesive

3-5


imageandappearanceof theexistingcommercialareaswithpar-ticularemphasison landuse,building location,buildingfacades,lighting,signageandlandscaping.ThecorridorplansshouldalsoaddressredevelopmentandinfilldevelopmenttomitigatewhatisnowthemissingteethalongSR9.

Action 2: Create a Zoning Overlay District It is recommended that theCity create anoverlaydistrict for I-

70 to promote the image of Greenfield bymanaging the typesof usesalongtheI-70corridor,limitingtheheight,managingtheplacementof parkingandloadingdocksandencouragingahigherqualitydesignfromuseslocatedadjacenttoI-70throughtheim-plementationof designrecommendations.

Action 3: Update the City’s Landscape Ordinance ItisrecommendedthattheCityupdateandadoptalandscapeor-

dinancethatenhancesthebeautificationof theCitybyaddressingplantings,designfeatures,maintenanceandupkeep.

Action 4: Update the City’s Architectural Standards It is recommended that the City review its current architectural

standardsanddevelopandadoptnewarchitecturalstandardsthatenhance thecharacterof theCityand thosewhichpromote thedesignprinciplesof thisComprehensivePlan.

Action 5: Develop Gateway Design ItisrecommendedthattheCitydevelopagatewaydesignformajor

andminorgatewaysasidentifiedontheFutureCommunityDevel-opmentPlanMap.Designplansshouldaddresstypesof signageincludingwayfinding, street lighting and landscaping inorder topromotetheCity’sidentityanddesiredimage.Itshouldbenotedthateachof thecommunity’sgatewayswillneedtobecoordinatedwiththeIndianaDepartmentof Transportation(INDOT).

Action 6: Implement the Design Standards in the Down-town Plan

The Downtown Plan has a set of recommendations for designstandards for thedowntown. It is therefore recommended thatthe City review the design standards of the Downtown Plan todeterminewhichstandardsareabletobeimplementedonacom-munity–widebasis.Itisfurtherrecommendedthattheapplicabledesignstandardsbeincorporatedaseitherdesignguidelinesintheformof amanualorasdesignstandardsintheCity’sZoningOr-dinance.

Action 7: Update Parking Standards In the past zoning ordinances contained parking standards that

providedtoomuchparkingforcommercialareas.ItisthereforerecommendedthattheCityupdateitsparkingstandardsinorderto minimize the amount of asphalt along SR 9 while includingprovisionsforsharedparkingalongcommercialcorridorsandintheDowntown.

Action 8: Update Zoning to Include Conversion Stan-dards

InordertoallowandpromoteresidentialconversionsalongSR9,

3-6


itisrecommendedthattheCitywriteguidelinesintoitszoningor-dinancethatallowthistypeof conversion.Suchguidelinesshouldalsoaimtoprotecttheexistingneighborhoodsfrombeingerodedbytheconversions.

Action 9: Update Subdivisions Control regarding Street Design Principles

It is recommended that thedesignprinciplesof the subdivisioncontrolordinancebeupdatedtopromoteandencouragegridormodifiedgridstreetstopromotetheTraditionalCitydesign.Ad-ditionally,thesubdivisionstandardsshouldrequiresidewalksandpathwaystoconnectsubdivisionstothepathway,trailandgreen-waysystem.

Action 10: Intergovernmental Agreement with Hancock County

ItisrecommendedthattheCitycreateanintergovernmentalagree-mentwithHancockCountytoreviewdevelopmentplansthatarea)within1mileof theCityof Greenfield’sjurisdictionalbound-aries,andb)withintheCityof Greenfield’s15or30yeargrowthboundariesastheyareshownontheFutureCommunityDevelop-mentPlanMap.

Traditional Development PrinciplesSinceitsfounding,theCityof Greenfieldhascontinuedtomaintainitstraditionaldevelopmentpatternevenunderthepressuresof newgrowth.Asthegrowthpres-suresfromtheCityof IndianapoliscontinuetomovetowardGreenfield,theCityneedstoestablishconcretetraditionaldevelopmentprincipals. TheCityneedstokeepitsexistingcoredevelopmentstrongandencourageinfilldevelopmenttofillinunderutilizedand/orvacantland.ThefollowinggoalanddevelopmentpoliciesareestablishedtomaintaintheCity’scoreandpreservethedevelopmentcharacterof theCityof Greenfield.

Goal 3: Preserve the existing community core and ex-pand those traditional development principles into new development

Policy 1: Compact Development Thecoreof theCity’sdevelopmenthasremainedcompactinna-

ture.Somenewdevelopmenthasbeguntospreadoutfromthiscore on the west side of the City. The City should encouragenewdevelopmenttoremainclosetoitsexistingcoreandremaincompactbylimitingtheextensionof servicesanddiscouragingan-nexationthatisn’tconsistentwiththeCity’sannexationstrategy.

Policy 2: Promote Infill Development and Redevelop-ment

ThereareseveralareaswithintheCity’score,andtheCity’s15-yeargrowth boundary,which are underutilized or vacant.Therefore,theCityshouldencourageinfilldevelopmentandredevelopmentof underutilizedparcels,especiallyalongSR9,untilallareasof itscoreand15-yeargrowthboundaryarebuiltout.

3-7


Policy 3: Limit Utility Extension TheCityshouldmanagethelocationof growthbylimitingitsex-

tensionof waterandsewerservicestoareaswithinitscoreand/or15-yeargrowthboundary, and furtherdiscouragingutilityexten-sionbeyondits15-yeargrowthboundary.

Policy 4: Provide Incentives TheCityshouldprovideincentivessuchasdensitybonuses,paving

of trails,fasttrackdevelopmentopportunitiesandbypromotingthepresenceof existingutilitiesatspecificsitestoencouragede-veloperstobuildoutthe15-yeargrowthboundary.

Recommended Action StepsAction 1: Implementation of Growth Boundary The Future CommunityDevelopment PlanMap identifies a 15

and 30-year growth boundary to help encourage infill and rein-vestment at the corewhere existing services already exist. It isrecommendedthattheCityavoidapprovingdevelopmentoutsidethe15and30-yeargrowthboundariesuntilthemajorityof parcelswithinthe15-yeargrowthboundaryhavebeenbuiltout.Itisfur-therrecommendedthattheCitypromoteredevelopmentoptionswithin the 15-year growth boundary. In the even that theCityfeelsitnecessarytoentertainthepossibilityof approvingadevel-opmentthat isbeingproposedoutsidethe15or30-yeargrowthboundaries,itisrecommendedthattheCityreviewthelocationof thatextension in thecontextof adjacencydevelopmentand theCity incorporated limits toweigh thecostandbenefitsof thoseactions.

Action 2: Review of the Growth Boundary Inordertokeepupwiththedevelopmentof thegrowthboundary

andtomonitoractivities,itisrecommendedthatCitystaff reviewthe15-yeargrowthboundaryevery3to5yearstodetermineif theCity’sgrowthobjectivesareconsistentwitheachof theboundar-ies.

Action 3: Update Zoning and Subdivision Regulations with Incentives

It is recommended that theCity update its zoning and subdivi-sion regulations to include incentives, such as density bonuses,decreasedsetbacks,narrowerroads,andincreasedheight,topro-moteinfillandredevelopmentof vacantorunderutilizedproper-tieswithinthe15-yeargrowthboundary.

Action 4: Update Zoning and Subdivision Regulations with an Adequate Facilities Ordinance

It isrecommendedthattheCityincludeprovisionsineachordi-nanceforadequateinfrastructurefacilitiestobeincludedwiththeconstructionof eachnewdevelopment, and that theybeput inplaceeitherbytheCityorthepropertyowners.

3-8


Industrial Economic Development

TheCityhascreateditsownscaleof economyandprovidedjobsforsomeof itsresidents. Industrialdevelopment isakeycomponent todiversifying theCityof Greenfield’staxbase,whichhasmostrecentlyconsistedof residentialtaxesresultingfromthemostrecentresidentialdevelopmentactivities.Thiswillfurtherprovidefor necessary improvements within the City to accommodate for the anticipatedincreaseinresidentialdevelopment.Interstate70providesreadyaccesstoavailablelandandthusprovidesanopportunityfortheCitytoexpanditsindustrialpark,fur-therincreasingthenumberof industrialuseswithinthecommunity.However,theCityshouldensurethatnewdevelopmentalongthiscorridorfitswithitsimageandprovidesthedesiredjobbase.Thegoalandpolicesfocusonthetypeof growththatshouldoccurandhowitshouldbefostered.

Goal 4: Encourage diverse industrial and office uses in the City to provide employment opportunities and diversify the City’s tax base.

Policy 1: The City should work with Hancock County Economic Development Corporation to market the image of the City of Greenfield and selec-tively recruit businesses to the Greenfield area.

Policy 2: The City should continue to review and reassess incentives, such as Tax Increment Financing (TIF) and tax abatement, to ensure that the City is advancing its economic development objec-tives and to encourage high quality office and industrial uses along I-70, and in Commerce Park and the Campus Research Center.

Policy 3: The City should seek employment growth by providing enough office and industrial areas to promote the retention and expansion of existing Greenfield employers.

Recommended Action StepsAction 1: Create a Campus Research Center ItisrecommendedthattheCitycreateacampusresearchcenter

southof US40andwestof SouthCountyRoad100East thatfocusespredominatelyonresearchandbio-industries.

Action 2: Expand Commerce Park It is recommended that the City expand on the industrial base

northof I-70tocreatemorelightindustrialandofficeareaswithintheCommerceParkbusinessparkandtakefulladvantageof theexistinginfrastructureandhighvisibilityfromI-70.

3-9


Action 3: Provide infrastructure CertainindustrialsitesintheareaknownasCommerceParkmay

notbefeasiblelocationsfornewemployerswithoutfirstprovidinganynumberof incentives.ItisthereforerecommendedthattheCityremoveoneof thecostsbyprovidinginfrastructure,wheth-erit issewer,water,transportationimprovementsorfiberopticswheresuchdevelopmentisdesirable.

Action 4: Rezone land Inordertopromotereadysitesforeconomicdevelopment, it is

recommendedthattheCitybeproactiveandrezoneland identi-fied foreconomicdevelopment,whether it is industrialorcom-mercial.

Action 5: Limit access from Commerce Park on SR 9 ItisrecommendedthattheCitylimittheimpactonI-70andSR

9withtheexpansionof CommercePark.TheCityshouldlimitaccess on SR 9 and encourage development to develop along afrontageroad,utilizeotherCitystreetsforaccessand/orencour-ageacomprehensiveplanneddevelopment.

Action 6: Minimize land use conflicts InordertominimizelanduseconflictsbetweenCommercePark

andresidentialareastothesouth,itisrecommendedthattheCityinclude,initszoningordinance,standardsandregulationstomini-mizelanduseconflictsbyprovidingadequatebufferinganddesignfeaturesregardingplacementof parking,loadingdocksandlight-ing.

Action 7: Create Industrial Guidelines InordertoensurethattheusesadjacenttoI-70meettheimageof

theGreenfieldcommunity,itisrecommendedthattheCitycreatedevelopmentguidelinesthatensurethatcompatibleindustrialusesaredevelopedandthattheyfaceI-70.

Action 8: Work with Hancock Economic Development Corporation

It is recommended that the City continue to compete with theothersurroundingsuburbsforindustrialandcommercialdevelop-ment.TheCityshouldworkwiththeHancockEconomicDevel-opmentCorporationtomaintainactiveon-goingbusinessrecruit-ment.Additionally,theCityshouldturnthespecificelementsof thisComprehensivePlanintoaposterplanthatcanbeusedasanactivemarketingtooltolureindustrytoGreenfield.

Local and Regional Commercial Economic DevelopmentThe north, south and west sides of Indianapolis contain some form of regionalmall.Theeastsideof Indianapolishoweverdoesnot,andthereforeisinneedof a regional commercial development. TheCityof Greenfield is in a key locationto build upon its economic development initiativeswith the creation of its ownregionalcommercialarea.StateRoad9hasservedasakeyretailhubforthecom-munityandcontinuestohavelandavailablefordevelopment.Thegoalandpolicesforthissectionfocusontheredevelopmentof underutilizedareasalongSR9and

3-10


infilldevelopmenttofillinthemissingteethaswellastopromotethecreationof aregionalmall.

Goal 5: Promote Greenfield as the regional commercial and retail hub east of Indianapolis.

Policy 1: Establish the Downtown as a Multi-Use Activ-ity

EstablishGreenfield’sdowntownasanimportantmulti-useactiv-itycenterforboththecommunityandtheregionbymaintainingrecreationalopportunities,promotingculturalfacilitiesandevents,strengtheningthespecialtyretailandbusinessmix,maintainingtheheartof governmentalfacilitiesandexpandinghousingopportuni-ties.

Policy 2: Minimize Strip Development StateRoad9hasdevelopedintoastripmalloverthepast20years.

Therefore,theCityshouldseektominimizeanyadditional“strip”developmentalongSR9andUS40bypromotingmoreintegrateddevelopmentandredevelopmentincoordinatedeffort.

Policy 3: Develop SR 9 as a Community Retail Area TheCityhasestablishedSR9asitscommunityretailfocuspoint.

Therefore,theCityshouldcontinuetodevelopandmaintaincom-munityretailandserviceactivitieswithintheSR9corridor.Thisincludespromotingcommercialuses tofill inand redevelop the“missingteeth”inthefrontagealongSR9.

Policy 5: Create Neighborhood Commercial Nodes Providingforconvenientlocalneighborhoodcommercialservices

is important to promoting accessible neighborhoods and limit-ingcongestionalongSR9.TheCityshouldlocateneighborhoodcommercialusesinoneof thefouridentifiedcommercialnodesontheFutureCommunityDevelopmentPlanMap.

Policy 6: Invest in the Downtown ThedowntownisavitalfunctionwithinGreenfield.Itprovides

bothlocalandnationalservicesduetoitsuniqueshopsanditslo-cationalongUS40;theHistoricNationalRoad.TheCityshouldcontinuetoinvestinthedowntowntokeepithealthyandaviablefunctionof theCity.

Recommended Action StepsAction 1: Create a Regional Mall TheCity is inauniqueposition toprovide regional commercial

usestoservetheeastsideof Indianapolisandhelptosupplementitstaxbase.ItisthereforerecommendedthattheCityreservelandnorthof I-70andeastof SR9tocreatearegionalmall,orlifestylecenter,forthesuburbanareaseastof Indianapolis.

Action 2: Adopt the downtown plan TheCityhasalreadycommittedvaluableresourcestocompletea

downtownplanforthepurposeof creatingorderandinvestingin

3-11


itsdowntown.Thedowntownplandocumentiscurrentlyastandalonedocumentwhichmaycausesomeof itsactionstepstobeoverlooked during the development review process by the PlanCommission.ItisthereforerecommendedthattheCityadopttherecentlycompleteddowntownplanasapartof thisComprehen-sivePlanupdate.

Action 3: Create a sub-area plan for SR 9 StateRoad9isakeycorridorintheCityasitisitsprimarygateway.

It is thereforerecommendedthattheCitycreateasub-areaplanforSR9to:reviewredevelopmentopportunities;identifyinfillop-portunities;addressbuildingdeterioration;andtodevelopacor-ridorthemewithrespecttosuchthingsaslandscaping,signageandlighting.Aspartof thissub-areaplan,theCityshouldalsoreviewexistingzoningstandardsforinconsistencieswiththedesiredde-velopmentforthearea.

Action 4: Continue to invest in upgrading public infra-structure

Inorder tomaintainahealthyappearancewithin thedowntownandalongSR9,itisrecommendedthattheCitycontinuetomakeinvestmentsintheDowntown’sphysicalimprovements.Thisin-cludes,butisnotlimitedtosidewalks,streets,lighting,landscapingandsignage.

EnvironmentAs theCity continues to develop therewill be challenges between balancing theprotection of natural features and the need for new development. Greenfield’senvironmentalassets, includingPottsDitchandBrandywineCreek,are importantelementsandthebackboneof theCity’sgreenwaysystem.ItisimportantthattheCityprotectsuchnaturalfeatures.Thegoalsandpoliciesof thissectionallowtheCity to capitalize on these environmental strengths, and incorporate them, as anasset,intofuturedevelopments,furtherprotectingthemforfuturegenerations.

Goal 6: Strengthen local environmental practices to pre-serve Greenfield’s natural areas and ecological assets.

Policy 1: Use native plants to enhance trail and greenway systems

Whereappropriate,theCityshouldincreaseitsuseof nativeplant-ingsandecologicallysoundmaintenancepracticestoreducemain-tenancecosts.

Policy 2: Protect environmentally sensitive areas TheCityshouldprotect,andenhance,theenvironmentallysensi-

tiveareasinandaroundtheCityof Greenfield,includingbutnotlimitedtoPottsDitch,BrandywineCreek,andLittleBrandywineCreek.

Policy 3: Establish new open spaces and trail connections The City should establish new open spaces and connections to

existingnaturalareastocontributetothepleasingandeconomi-

3-12


callyviableCity-widedevelopmentpatternandfurtherprotectthenaturalamenitiesthroughoutthecommunity.

Policy 4: Encourage new tree plantings TheCityshouldencouragenewtreeplantingsandthepreservation

of existingtreestopreserveandcreatenaturalareasinandaroundtheCity.

Recommended Action StepsAction 1: Preserve Potts Ditch PottsDitch has been identified as themajor greenway connec-

tivespinefortheCity.ItisthereforerecommendedthattheCityrequirenewdevelopmentsalongtheditchtoincludeaneasementfortheditchsothatitmayserveasanaturalgreenwayandfurtherpreservetheintegrityof theditch.

Action 2: Create a tree preservation ordinance Cities often use the protection of existing trees to enhance the

aestheticvalue,andoverallqualityof life,of theircommunity.ItisthereforerecommendedthattheCityincludethecreationof atreepreservationsectionintherecommendedupdatetotheirland-scapingordinance. Thetreepreservationsectionshouldrequirean inventoryof significant treesonasiteandcontainstandardsforpreservingviabletrees,orif treesareunabletobepreserved,standardsfor replacingtreesbasedonapredeterminedratio.

Action 3: Require new connections to subdivisions Connectednessisoneof thekeycomponentsinthisComprehen-

sivePlan update. It is recommended that newdevelopment beconnectedtoexistingdevelopment,aswellas,provideconnectionsto futuredevelopments. This canbe accomplishedbyupdatingboththezoningandsubdivisioncontrol ordinances to includestandards that ensure transportation connectivity between andwithindevelopmentsincludingroad,sidewalk,trail,greenwayandbicyclepathconnections.

Action 4: Require green space/open space in new devel-opment

AsnewdevelopmentcontinuestobuildoutintheCity,greenspaceandopenspacewillbeaprimecommodity. It is recommendedthatTheCity requireacertainpercentageof open/greenspace,eitheractiveorpassive,inallnewsubdivisions.

Parks, Recreation, and Community NodesCommunityfacilitiessuchasparks,recreationalareasandcommunitynodesplayavitalroleinthemaintenanceof thetraditionalcommunitydesignandfurtherensurethatallfutureresidentswillhaveaccesstothesametypeof facilitiesasdotheexist-ingresidents.TheCityneedstoensurethatexistingfacilitiesaremaintainedwhilenewonesareaddedtotheCity.Privateandpublicentitiesshouldprovidealllevels

3-13


of park,recreationandtrail facilitiesthroughoutthecommunitytohelppromotevibrant neighborhoods. The following goal and policies provide for continuedenhancementandexpansionof theparkandtrailsystem.

Goal 7: Expand and enhance the existing park system to meet increased demands

Policy 1: Develop the Pensy Trail ThePensyTrailisanimportantconnectionthatrunsthroughthe

center of the City and the heart of the Downtown. The Cityshould continue to develop the Pensy Trail to the west of theCity.

Policy 2: Identify future parks TheFutureCommunityDevelopmentPlanMaphasidentifiedar-

easwherefutureparkswillbeneededtoservicefutureneighbor-hoods. The staff and Plan Commission should work with theparks department to review future park recommendations andcommunitynodestodeterminewhichareasshouldbetargetedforfutureparks.ThiswouldincludemonitoringtheCity’sgrowthinpopulationandreviewingtheCity’sbuildingpermitstogaugeanyincreasedneed for the inclusionof recreational facilities innewdevelopments.

Policy 3: Use trails to link the neighborhoods and the Downtown

Residentsof theGreenfieldcommunityshouldhavesafeandre-liable access between their neighborhoods and the Downtown.Therefore, the City should use sidewalks and on-street an off-street trails to link theDowntown to adjoining neighborhoods.ThiscouldbeaCity initiativethat isupdatedtoasnewsubdivi-sionsaredeveloped.

Policy 4: Use trails and paths to connect the entire com-munity

Onecomponentof theTraditionalAmericanCommunity is theconnectivitybetweencommercial, residentialandcommunity fa-cilities.Therefore,theCityshouldensurethattrails,pathways,andsidewalks connect to all community nodes, neighborhoods, andcommercialareasandalongtheproposedGreenfieldParkway.

Recommended Action StepsAction 1: Inventory Sidewalks ItisrecommendedthattheCitycreateandmaintainaninventory

of sidewalksandtrailsthroughoutthecommunity,includingtheirexistingconditionstoreferencewhenreviewingdevelopmentsandupdatingtransportationandinfrastructureimprovementplans.

Action 2: Create an overall greenway system ThisComprehensivePlanupdateandtheFutureCommunityDe-

velopmentPlanMaphavelaidthegroundworkforanoverallgre-enwayandtrailsystem.ItisthereforerecommendedthattheCitycreateandincorporateintotheexistingparksplananoverallgre-

3-14


enwayandpathwaysystemutilizingBrandywineCreekandPottsDitchasthecommunity’sspine.

Action 3: Update the 5-year Parks and Recreation Master Plan

Withallof theadditionalparkandrecreationimprovementsiden-tifiedbythecomprehensiveplanningprocessandontheFutureCommunityDevelopmentPlanMap,itisrecommendedthattheCity’s planning staff workwith theCity’s Parks andRecreationDepartmenttoupdatetheCity’s5-yearParksandRecreationMas-terPlanusingtherecommendationsof thisComprehensivePlanupdate. The updated parks and recreationmaster plan shouldthenbemadeapartof thisComprehensivePlanupdatesothat,liketheDowntownPlan,itsprovisionsmaybeconsideredduringdevelopmentreviewbymembersof thePlanCommission.

Action 4: Update subdivision control ordinance It is recommended that the City update its subdivision control

ordinancetorequirethatallnewsubdivisionsconnecttothegre-enway systemby incorporating anatural greenway, sidewalksortrails,includingstandardsandspecificationsthattheyCitywouldlikedeveloperstofollow.

Action 5: Promote funding for park and recreation im-provements

Withlimitedresources,parkandrecreationimprovementsareof-tenthelastimprovementsacommunityiswillingtomake.It isthereforerecommendedthattheCityconsiderimpactfeesand/orfeesinlieuof openspacerequirementstoprovideforimprove-mentsandconnectionstothecommunitiestrailandgreenwaysys-tem.

Action 6: Extend the Pensy Trail to the West It is recommended that the City create a trail plan that further

designatesanddesignsthetrailconnectionforthePensyTrailtothewest.Thetrailplanshouldincludetrailheaddesignsandcon-nectionstoexistingandfuturepaths/trailsinthecommunity.

TransportationThe City of Greenfield is responsible for maintaining and upgrading its infra-structuresystemincluding,butnotlimitedto,itsroadsandsidewalks.Oneof thegreatest challenges theCityof Greenfieldwill face in the future is ensuring thatthe community’s existing transportation system continues to be maintained andenhancedwhilestillprovidingforfuturegrowthof thecommunity’stransportationsystem,anddosowithrelativelylimitedfunding.ThefollowinggoalandpoliciesareintendedtohelptheCityplanforimprovementsandfuturegrowthwithrespecttoitstransportationsystem.

Goal 8: Provide a safe and efficient transportation net-work

Policy 1: Require continuity of streets in subdivisions Tocontinuecontinuityof thegridstreetpatternintheCity,Green-

3-15


field should require continuity of existing arterial and collectorstreets into new subdivisions and continue theCity’s traditionalstreetgridpattern.

Policy 2: Promote regional transit TheMPOiscurrentlystudyingpotentialopportunitiesforregion-

altransitontheeastsideof theCityof Indianapolis.IntheeventthataregionaltransitsystemisdevelopedbytheMPO,theCityof Greenfieldshouldidentifywaystoconnectintoit.

Policy 3: Require adequate right-of-way in new develop-ments

CertainstreetswithintheCityareinneedof upgradesand/orwid-ening.ThisprocesswillbehinderedinareaswheretheCitywillhavetofirstacquireadequateright-of-waytomaketheseimprove-ments.Therefore,theCityshouldrequirededicationof adequateright-of wayinallnewdevelopmentsforfutureextensionsof thestreetsysteminaccordancewiththeCity’ssubdivisioncontrolor-dinance.

Policy 4: Promote continuity between residential and em-ployment areas

TheCityshouldensurethatnewdevelopmentprovide“continu-ity”between theCity’sexistingandnewresidentialandemploy-mentareasbyimplementingasidewalkordinance.

Policy 5: Discourage driveways fronting arterial and col-lector streets

Congestionoccurswhennewdevelopment isaddedwithoutthecarefulconsiderationof thenumberof curbcutsassociatedwithnew development. The City should discourage driveways of low-density residential developments along arterial and collectorstreets.

Policy 6: Promote access from commercial development to neighborhoods

Residentsshouldbeawardedpedestrianaccesstocommercialar-easinordertomaintaintheCity’scurrentqualityof life.TheCityshouldencouragethedesignof newcommercialdevelopmentstoprovidepedestrianaccesstonearbyneighborhoods.

Policy 7: Provide access management for major corridors Limiting access onto SR 9, US 40 and other major corridors

throughthelimitingof drivecutswillbeanimportanttoolinthefuturetomanagecongestion.Therefore,theCityshouldencour-agecoordinatedandshareddrivewayswhereverpossiblefornewdevelopmentorredevelopment,especiallythosedevelopmentslo-catedoff majorarterialsandcollectors.

Recommended Action StepsAction 1: Pursue grants ItisrecommendedthattheCityinvestigateandpursuealternative

funding sources such as transportation enhancement grants forinfrastructureandtrailimprovements.

3-16


Action 2: Limit cul-de-sacs Cul-de-sacsaremorecontemporaryinsubdivisiondesignandlimit

the levelof connectivity inacommunity. It is thereforerecom-mendedthattheCityupdateitssubdivisioncontrolstandardstolimitthenumberof cul-de-sacswithinnewsubdivisions,suchastoprotectnaturalfeatures,tofurtherpromoteconnectivitythrough-outthecommunity.

Action 3: Require grid or modified grids in new subdivi-sion designs

ItisrecommendedthattheCityupdatetheirsubdivisioncontrolordinancetorequiretheuseof gridormodifiedgridstreetpat-ternsandstreetswithappropriatewidthsforthesizeandqualityof homesinnewsubdivisions.

Action 4: Update the thoroughfare plan This Comprehensive Plan update recommends several land use

changes thatwill ultimately impact theCity’s transportation sys-tem. Therefore, it is further recommendedthat theCityupdatetheir thoroughfare plan utilizing the land use recommendationswithin this Plan. The City should then adopt its ThoroughfarePlanaspartof thisComprehensivePlanupdatesothatitmaybereferencedduringdevelopmentreview.

Action 5: Update functional street classifications It is recommended that, in updating the thoroughfare plan, the

Cityreviewand,if necessary,revisethefunctionalstreetclassifi-cationdesignationstoprovideguidanceregardingimprovements,upgradesandextensionsof theCity’sstreetsystem.

Action 6: Update street design standards It is recommended that, upon completion of the updated thor-

oughfareplan,theCityupdatethedesignstandardsandright-of-way standardswithin its subdivision controlordinance, and thattheybeconsistentwith theupdatedstreetclassificationdesigna-tions.

Action 7: Require sidewalks in all subdivisions ItisrecommendedthattheCityrequirethatallnewsubdivisions

havesidewalks locatedonat leastonesideof theroad,butthattheyencourage,possiblythroughincentives,thatdevelopersinstallsidewalksonbothsidesof thestreet.

Action 8: Create a parkway TheFutureCommunityDevelopmentPlanMapidentifiesapark-

way system along CR 400East, 300 South,Meridian Road andNewRoad,thatwillhelpaccommodatethepotentialtrafficof newsubdivisionsandaidetorelievecongestionalongSR9.

Action 9: Design Attractive Streetscape Designs InadditiontotheUS40andSR9corridorsaddressedearlier,there

areanumberof othersignificantstreetswithintheCitythatshouldbeenhanced.Designingandcreatingattractivestreetscapedesignsareimportanttothecharacterof theCityandshouldbeincorpo-ratedintothezoningandsubdivisioncontrolordinances.There-foreitisrecommendedthattheCitydevelopdesignstandardsto

3-17


enhancetheaestheticappealof significantstreetsthroughouttheGreenfieldCommunity.

Action 10: Incorporate Traffic Impact Studies into the Sub-division Control Ordinance

NewgrowthanddevelopmentwillcontinuetoaddcongestionandputastrainontheCitystreets.Therefore,itisrecommendedthattheCityupdate its subdivisioncontrolordinance to require thatdevelopments, of a predetermined size, conduct traffic impactstudiesasapartof thedevelopmentplanapprovalprocess.

Historic PreservationPartof theCity’straditionaldevelopmentcharacterischaracterizedbythepresenceof historicbuildingswithinitsdowntown.TheCityhasstruggledwithrevitalizingitsdowntownandmaintainingthesehistoricstructures;structuresthatprovidesacertaincharmandcharactertotheantiqueshops.ThefollowinggoalandpoliciesfocusontheCity’seffortstomaintainandpreserveitshistoriclandmarks.

Goal 9: Preserve historic features and structuresPolicy 1: Preserve the historic character of downtown TheCityhasadistincthistoriccharacter thataddstothecharm

of theDowntown.ItisthereforerecommendedthattheCitypre-servethehistoriccharacterof itsdowntownwhilepromotingandaccommodatinginfilldevelopment.

Policy 2: Promote the use of historic districts Toprotectexistingstructures,theCityshouldpromotetheuseof

historicdistrictsandhistoricpreservationasameansof protectingGreenfield’sarchitecturalandhistoricculture.

Recommended Action StepsAction 1: Create a historic district overlay district It is recommended that theCitycreateahistoricoverlaydistrict

inthedowntownareaforthepurposeof preservingthecharacterof thestructuresintheDowntownwhilestillallowingfortheeaseof certainmodificationstothestructuressothatpropertyownersaren’tinconveniencedbydoingso.

NeighborhoodsNeighborhoodsare thebackboneof theTraditionalAmericanCity. TheCityof Greenfield has very defined neighborhoods that have been established throughits subdivision development process. Many of these traditional neighborhoodscontain a grid street pattern and sidewalks, both of which promote connectivityneighborhoodsandcommunityfacilities.Asnewdevelopmentcontinues,theCity

3-18


maystruggle tomaintain theconnectivitybetweenexistingneighborhoodsand inensuringthatnewneighborhoodsareconnectedtoolderones.Thefollowinggoalandpoliciesensurethatneighborhoodsremainthefocalpointof theCityidentify-ingactionsthatwillkeepthemvibrant.

Goal 10: Create and preserve healthy, vital neighbor-hoods that serve as a focal point within the City.

Policy 1: Limit residential conversions in neighborhoods Encroachmentsof non-residentialusesintoresidentialneighbor-

hoodscandeteriorateanderodeneighborhoods.TheCityshouldprotectresidentialareasfromconversionintobusinesses,commer-cialareasandindustrialusesandprovidelandscapedbufferareastoeliminate,or reduce,anynegative impacts fromadjacent landuses.

Policy 2: Increase neighborhood connections The design of newer,more contemporary neighborhoods often

lack a connection to older neighborhoods that weremore thanlikelydevelopedinagridpattern.Therefore,theCityneedstoex-plorewaystoimprovepedestrianandautomobilelinkagesamongneighborhoodsto interconnectneighborhoodsandprovidecon-nectionstosuchthingsascommercialareas,schools,churchesandparks.

Policy 3: Protect and preserve neighborhoods Neighborhoodsarethefundamentalbuildingblocksof anyCity.

Theconceptsandvisionof thisPlanwerebuiltaroundprotectingandpreservestrongneighborhoodsinGreenfield.TheCityshouldpromoteneighborhoodsasthefocusof thecommunityforfutureplanningandprogrammingactivities.

Policy 4: New, redevelopment and infill development should maintain existing character

Residentialdevelopment,beitneworinfilldevelopment,canhaveasignificantimpactonthecharacterof anyCity.Therefore,theCityof Greenfieldshouldencouragenewresidentialdevelopmentandredevelopmenttobecomplementarytothescaleandcharac-terof existing,surroundingresidentialuses.

Recommended Action StepsAction 1: Create a neighborhood identification map It is recommended that theCity create aneighborhood identifi-

cationmapthatdefinesindividualneighborhoods.TheCitycanutilizetheFutureCommunityDevelopmentPlanMapasastartingpoint. It isfurtherrecommendedthat theneighborhoodidenti-ficationmapbecreatedusingageographicinformationmappingsystem.SuchamapwouldallowtheCitytoanalyzeandmonitortheconditionsof neighborhoodssoastotargetspecificneighbor-hoodsneedingimprovements.

3-19


Action 2: Complete an assessment of each neighborhood It is recommended that theCity identifyolder, transitingneigh-

borhoodareasandcreateaplanforeachdefinedneighborhood.Each neighborhood plan should include utility and service im-provements, housing improvement projects, street and sidewalkimprovements,parks,treeplantingandanyothertypeof projectappropriatetothearea.Suchsystematicplanningwillalsohelptoestablish improvement prioritieswithin that specific area, ratherthanonatownwidebasis.Itisfurtherrecommendedthat,asoneof theannualreviewitems,thePlanCommissionsurveytheentireTownforneighborhoodconditionstotargeteachyear.

Action 3: Prepare neighborhood plans ItisrecommendedthattheCityprepareneighborhoodplansfor

neighborhoods that are in transitionorneed extra attentionbe-cause they are deteriorating, incorporating resident involvementforidentified“targeted”neighborhoodstoensurethatlocalneedsandissuesareaddressed.Theseneighborhoodplansshouldpro-videgreaterdetailthanthatwhichisincludedaspartof thisCom-prehensivePlanupdateforeachneighborhood.Eachplanshoulddefine roles and responsibilities for plan implementation, andidentifyanyinformationanddatathatwillbeneededtoprioritizetheactionstepsoutlinedintheimplementationsection.

Action 4: Adopt Neighborhood Design Standards Thedeteriorationof older,moreestablishedneighborhoodscan

occurwhennewresidential infilldesignis incompatiblewiththescale,densityandcharacterof existingneighborhoods.Itisrecom-mendedthattheCityincorporateneighborhooddesignstandardsin its zoning ordinance so that the existing character of neigh-borhoodscanbebettermaintainedandtopreventnewdevelop-mentsandadditionstoexistingstructureswhichareincompatible.The establishment of residential design standards that focus oninfilldevelopmentwouldensurethatbuildingdesignsarecompat-iblewiththecharacteristicsof neighborhoods intermsof scale,mass,buildingpatterns,andfacadearticulation.Designelementsof prevalentneighborhoodarchitecturalstylesandregulationsthatensurethataccessorybuildingsarecompatiblewiththeprincipalstructureshouldalsobeincluded.Thiswillallowformodernde-signandinterpretationof neighborhoodarchitecturalstyles.

Action 5: Increase Housing and Property Maintenance Code Enforcement

Whilezoningenforcementisanon-goingprocess,moreattentionshouldbeprovidedtocodeenforcementwithinexistingneighbor-hoods. Typically, enforcementwould target rentalproperties, astheyaremoresusceptibletoenforcementviolations.Allpropertiesshouldabidebyminimumstandards.Therefore,itisrecommend-edthattheyCitystepupitshousingandpropertymaintenanceen-forcementinanefforttoevaluatetheexistingcodeanddetermineif there are anynecessary revisions. It is further recommendedthat theCityhireadditional staff inorder tocover its increasedenforcementefforts.

3-20


Action 6: Review of Lot Division/Combination Require-ments

Proceduresoutliningthecompatibilitydeterminationprocesswillensurethatlotdivisionsdonotcreateincompatiblebuildingsites.Therefore, it is recommended that the City establish, within itszoningordinance,forandreviewproposeddevelopmentsagainstlotsizecompatibilityandexistingneighborhoodstandards.

HousingEachneighborhoodiscomprisedof aseriesof houses.TheCitystrivestoprovideadiversityof highqualityhousingtypesandpricessothateveryresidentintheCitycanmoveupastheireconomicandfamilystatuschanges.InorderforGreenfieldto keep its existing neighborhoods intact while new neighborhoods continue toemerge,afocusonmaintainingexisting,olderstructuresisneeded.Thefollowinggoalandpoliciespromotestrong,diversehousingdevelopmentandestablishactionstepstomaintaintheexistingstockandensurethatnewhousingof highquality.

Goal 11: Encourage a diverse mixture of higher quality of housing that serves all populations in Green-field.

Policy 1: Provide for a mixture of housing types TheCityhasadesiretoprovideavarietyof housingstyleswithin

itssubdivisions.TheCityshouldensurethatthereisamixtureof housingtypestomeetthelifestyleneedsof Greenfield’sresidents.Onemethodof ensuringthatthereisamixtureof housingtypesthroughouttheCityof Greenfieldisthroughthepromotionanduseof thePUDprocess.

Policy 2: Encourage multi-family development Apartmentsprovidecertainsegmentsof thepopulationhousing

opportunitiesinGreenfield.TheCityshouldcontinuetoencour-agehighqualitymulti-familyhousingdevelopments.Suchhousingshouldbelocatedneararterialorcollectorstreetstominimizetraf-ficcongestiononlocalstreets.Inaddition,multi-familyhousing,as is the casewith every type of housing, should be subject todesignstandardsandpoliciesconsistentwith theCity’sdesire tocreateattractiveneighborhoodsandoverallqualityhousing.

Policy 3: Promote compatibility between residential den-sities

Even among residential densities, land use conflicts can occur.WhenreviewingnewdevelopmenttheCityshouldensurethatfu-tureresidentialdevelopmentisappropriatelyarrangedtomaximizecompatibilitywithavarietyof densitylevels.Inaddition,residen-tialcommunitiesshouldbereviewedfortheappropriateaccesstocommunityfacilitatesandtheappropriatelevelof landscapingandbufferingrelativetotheirsurroundinguses.

3-21


Policy 4: Maintain active code enforcement TheCityshouldpreservetheexistinghousingstockthroughregu-

lar,activecodeenforcementandpreventivemaintenance.Policy 5: Promote high quality residential development TheCityshouldpromotehighqualityresidentialdevelopmentina

varietyof typesanddensitiesbypromotingtheuseof high-qualitybuildingmaterials,landscapedfrontyards,adequatesetbacksandarchitecturalstylesfornewresidentialdevelopment.

Policy 6: Encourage housing in the downtown area TheCityshouldencourageresidentialdevelopment, in theform

of upper-storyunitsandtownhomes,intheheartof theDown-town in an effort topreserve andmaintain theDowntown as ahealthyandvibrantcore.

Recommended Action StepsAction 1: Seek additional funding sources ItisrecommendedthattheCityseekfundingsources,suchasfa-

çadegrantprograms, to assist in themaintenance and improve-mentof housingconditionsforthepurposeof providingadiver-sityof housingtypesintheCity.

Action 2: Create a new residential zoning district It is recommended that theCity create anew residential zoning

district thatwould encouragemulti-family housingbehind com-mercialcorridorsandonsecondstoriesintheDowntownandinthelifestylecenter.TheCityshouldalsoconsiderpermittinglive-workoptionsthatallowresidentialandcommercialdevelopmenttooccur inthesamestructure inorderto lessenrelianceontheautomobileandtoallowmorepeopletoworkclosetowheretheylive.

Action 3: Require Quality Affordable Housing Astheypromotediversehousingoptions,itisrecommendedthat

theCityestablishzoningregulationsthatallowforsmall-lot,smallliving area homes to ensure that affordable housing is availableto itsresidents. It isfurtherrecommendedthat theCityrequireadditional standards that ensure that these developments are of ahigherqualitythanthatwhichistypicallyassociatedwiththem.Suchstandardscouldincludeincreasedlandscaping,someminimalarchitectural standardsand/or limiting repetitivedesignsalongastreet.

Action 4: Update Design Standards for Residential Homes

Qualityhousinghasbeenakeyissueidentifiedthroughoutcom-prehensiveplanningprocess. Therefore, it isrecommendedthattheCityreviewitsexistingresidentialdesignstandardsandupdatethemtoincreasethequalityof thefuturehousingstock.

3-22


Action 5: Establish a housing subcommittee ItisrecommendedthattheCityestablishahousingsubcommittee

frommembersof thePlanCommissiontoreview,onanannualbasis,findingsof theplanningandbuildingdepartmentsbuildingpermitsandapprovedsubdivisions.Thepurposeof thissubcom-mitteewouldbetodiscussthecurrenthousingpolicies,housingmixratiosandowneroccupiedandvacancyratiostoensuretheyareconsistentwiththepolicydirectionof theCity.

Action 6: Monitor Subdivision Build Out As part of this Comprehensive Plan update, the City compiled

informationregardingsubdivisions, includingthenumberof ap-provedlots,acreage,remaininglotstobebuilt,density,zoningandapprovaldate.ItisrecommendedthattheCitymaintainthischarttomonitorandtrackhousingtrendsandpresenttheirfindingstothePlanCommissionasnecessaryinordertomakepolicyadjust-ments.

ChapTer 4: CommuniTydevelopmenTplan


4-1


Introduction

In late Fall of 2005, a land use concept plan was created and presented to theSteering Committee based upon the vision and goals and objectives, an overallframeworkhadbeencreated.Theframeworkcanbebrokenintothreemajorele-mentswithintheCity.Theyinclude:communityandneighborhood;commerceandindustry;andnodesandpathsasdepicted inFigureXX,EmploymentAreasandResidentialCommunities.TheemploymentareasincludethenodeatI-70andSR9,thedowntownbusinessdistrict,andEliLilly.Greenfield’sresidentialcommunitieshavebeengenerallylocatedwithinCountyRoad200West,400North,400Eastand300South.

TheCommunityandNeighborhoodelementestablishedacommunityof plannedtraditional neighborhoods, woven together with Greenfield’s existing traditionalneighborhood framework. The tradition of Greenfield’s historic neighborhoodframeworkiscontinuedwithnewtraditionalneighborhoodsandinfill/stabilizationprojects.Allof theseprojectswouldoccurwithinplannedgrowthareas.

TheCommerceandIndustryelementidentifiedareasof focusedgrowthatprimelocationsintheCitythatofferthehighestlevelof infrastructureandregionalaccessthatistypicallyassociatedwithcommerceandindustry.Theselocationsarefocusedatkeylocationsdrivenbymarketforcesandregionalaccessibilityandwouldencour-agenodaldevelopmentversusscattered,orstrip,development.Theexpansionof commerceandindustryinandaroundtheCityof Greenfieldincludesthecreationof theGreenfieldLifestyleCenter,GreenfieldCommerceParkandtheGreenfieldResearchCampus.

TheNodesandPathselementpromotesthecontinuedconnectivityof thecommu-nitybetweentheneighborhoodandcommerceandindustryareas.Aframeworkof keycommunitydestinationsandgreenspacesthatarelinkedbyasystemof gate-ways, corridors and pedestrian trails would create interconnectedness throughouttheGreenfieldcommunity.

The2025CommunityDevelopmentPlanMapcontainsgeneralpoliciestoinfluencegrowth,developmentandstabilityof theCitycoreintothefuture.

Element one: Community and NeighborhoodAsmore people seek the conveniences and quality of life offered inGreenfield,it is important to address thedifferent community elements anddifferentiate theresidentialopportunitiesthatarebeingproposed.Locationsandintensitiesof newneighborhoodsshouldbecarefullyconsideredandreviewedtoensureconsistencywith goals establishedby the community. Thisplan establishes six intensitiesof residentialdevelopment.

InFigureXX,theFutureCommunityDevelopmentPlanillustratesthattheCityof Greenfieldcurrentlycontainsseveralorganizingpatternsthatsupportbothexistingandfutureresidentialdevelopmentsincluding:

4-2

Chapter 4: Community Development Plan

• NaturalfeaturessuchasBrandywineCreekandPottsDitchthat providenaturalconnectionsthroughouttheCity;

• CommunityConnectorsincludingI-70,SR9andUS40which providethecommunitywitharegionaltransportationnetworkat thecenterof thecommunity;

• Astrongcentral,andhistoric,towncenter;and

• Naturalgrowthboundariesthatprovideforacompact communitywithdistinctivelydefinedboundaries.

Neighborhoods

Neighborhoods in Greenfield can be classified into four types: TraditionalNeighborhoods, Suburban Neighborhoods, Planned Traditional NeighborhoodsandAgriculturalBuffers.ThesearedepictedinFigureXX.

Traditional neighborhoods are existing neighborhoods that would be given spe-cial district designations to celebrate their unique historic character. Traditionalneighborhoodsarestrengthenedwithneighborhoodinfillandstabilizationprojects.These neighborhoods are still predominately located at the core of Greenfield.Theyarelaidoutinatraditionalgridstreetpattern,havefrontporches,arelocatedclosertothestreet,andarecomprisedof treelinedstreets.

Suburban neighborhoods are those neighborhoodswhich have been constructedsince the 1980’s. These neighborhoods have begun to de-centralize growth andtraditionaldevelopmentpatterns inGreenfield. This is thenewwaveof subdivi-sions, moving away from the traditional grid street pattern to a more curvilinearstreet pattern with cul-de-sacs, which ultimately limit connectivity to the rest of theCity.Lotsof suburbanneighborhoodsaretypicallylargerwithhomessetbackfartherfromthestreet.Traditionalporchesaregoneinfavorof entrywaysandafrontloadinggarage.

PlannedTraditionalNeighborhoodsare thoseareaswherenewresidentialgrowthhasbeen,orshouldbe,plannedtoreflectthetraditionaldevelopmentof Greenfield’spast. Thiscould includereturningbacktoagridormodifiedgridneighborhoodpattern,developingarchitecturalstandardsthatbuildupontherichhistoricalfabric,re-establishingconnectivitytotheCitycore,returningporchestothefrontof eachhome,andre-orientinggaragessothattheyaresideorrearloadedratherthanfrontloaded.

PlannedTraditionalNeighborhoodshavebeenfurtherrefinedtoprovideguidanceonlevelsof densityappropriateforeachof thesenewneighborhoods.Thedescrip-tionsbelowprovidegeneralguidanceonthecharacterof thesedifferentintensities.TableXXprovidesmorein-depthdetailonthecharacteristicsthatshouldbecon-sideredinevaluatingnewresidentialgrowthinandaroundtheCityof Greenfield,including the character of the development, the intensity, area designation, adja-cency,regionalaccess,localaccess,pedestrianaccess,infrastructure,transitionanddesignprinciples.

4-3


Agriculture

AgriculturalbufferneighborhoodsaretypicallylocatedoutsidetheCityboundariesand serve as a buffer area between the urbanizedCity and themore rural char-acter of the county. This helps to focus growth back towards the community’score.Agriculturalbufferneighborhoodsareholdingareasforfuturedevelopmentbeyondthelifeof thisComprehensivePlanupdateafterdevelopmenthasfilledinthecentralcoreof thecommunity.Thecharacterof theagriculturalbufferneigh-borhoodshouldbefarmsandestatehomeswhicharetypicallysinglelotdevelop-ments.Residentialsubdivisionsshouldnotbepermittedinthisholdingarea.Itisanticipatedthatthisareawoulddevelopwithresidentialdevelopmentnotlessthan1dwellingunitsforevery2acres.

Very Low Residential Density

Whilevery lowresidentialdensitiesaregenerallydiscourageddue to their relativeinefficiencyinprovidingpublicservices,thistypeof developmentservesasthetran-sitionareafromexistingagriculturalareasandother,oftenmoredenseresidentialareas.Theseareasaregenerallyfoundoutsidethe15-yeargrowthboundary.Verylowresidentialdensityareasshould includesingle-family residentialdevelopmentsof,ataminimum,1dwellingunitperacre.

Low Residential Density

Alargeportionof theCityof Greenfield’shousingstockcouldbeclassifiedasbeingconsistentwithwhatisreferredtoaslowdensityresidentialdevelopment.Thistypeof developmentisplannedaroundthetraditionalgridormodifiedgridstreetpat-ternandtypicallyhasanintensityof 1to3dwellingunitsperacre.Theseareasaretypicallylocatedbetweenmediumdensityresidentialusesandothernon-residentialareas and serve tobuffer them fromagricultural andvery lowdensity residentialareas. Depending on the size of these developments, two entrances might beneededaswellasaccessof amajorcollectorroad.

Low to Medium Residential Density

Lowtomediumdensitysingle-familyresidentialdevelopmentsof 3 to5dwellingunits per acre are preferred over the lower densities currently being constructedwithin the City of Greenfield. There are many recently approved subdivisionsthat possess this level of density. Many have been approved as Planned UnitDevelopments(PUD).Futuredevelopmentsof thisdensityarerecommendednearthemajortransportationcorridorsof XXandXX.

Lowtomediumdensityresidentialdevelopmentsaretypicallylocatedclosertothecoreof theexistingdevelopment inGreenfield. Moderatedensitydevelopmentscould serve as transitional uses between higher density residential or commercialand lowerdensity residentialdevelopments. They shouldbe locatedalonga col-lector road and, dependingon the sizeof thedevelopment, shouldhave at leasttwoentrances to thedevelopment. Bynature, thehigherdensityof thisresiden-tialdevelopment typerequires thepresenceof sidewalksandconnections to theGreenfieldtrailsystemandcommongreenareas.

4-4


Medium to High Residential Density

Fromacommunity servicesand infrastructureplanningviewpoint,developmentsof 5to7dwellingunitsperacrearemoredesirablethanlowerdensitydevelopments.Withthehigherdensity,itispossiblefortheCitytobettersupplythesehigherden-sityareaswithinfrastructure,publicfacilities,fireandpoliceprotectionwithrespectto efficiency. These higher density developments will typically be single familydetachedhomes,zerolotlinehomes,duplexesandmaycontainsometownhomesor apartments. Developmentsof thisnature shouldbe encouraged toprovide amixtureof developmentdensitiesinonedevelopment.

Becauseof theirhigherdensities,theseareasshouldbelocatedinthecoreof exist-ingdevelopmentadjacenttothedowntownormajorcommercialcorridorswithintheCity,whichmeans they are laidout in a gridormodifiedgrid streetpattern.Thisdensityisalsowellsuitedasabufferbetweenthemoremoderatedensitiesandhighdensityresidentialorcommercialuses.Alsoasaresultof thehigherdensity,amajorcollectorroadorsecondaryarterialisneededtohandletheincreasedtrafficwiththisdenseof adevelopment.Sidewalksshouldbeinstalledandmaintainedonbothsidesof thestreet.Becauseof theirdensity,theCitymaywishtoputaddition-alarchitecturalstandardsinplacetoensurehigherqualityof developmentaswell.

High Density

Townhomes,apartmentsandassisted living facilitiesgreater than7dwellingunitsperacreareencouragedtobeutilizedastransitionalelementsbetweenemploymentareasandlessdenseresidentialareas.ThishighdensityclassificationisintendedtoprovideadditionaldiversitywithintheCity,asthecommunity’syoungestandoldestresidentsaremorelikelytooccupythesehousingtypesthananyotherhousingtypeavailable.

Withthehigherdensities,theseareasshouldbelocatedinthecoreof existingdevel-opmentwithin the downtown or adjacent tomajor commercial corridors withintheCity,andbelimited,orevenprohibited,ontheouteredgesof theCity.Thisdensitytypeshouldhaveatleastaccessontosecondaryarterialsorparkways.TheCitymaywishtoestablishmaximumdensityrequirementintheirzoningordinancetomanagethesizeof thesedevelopments.Connectionstothetrailssystemsshouldberequiredaswellasinternalsidewalks.

Commerce and IndustryIn order to create a balanced economic base for the City, it is recognized thatsomeareaswithin theCity shouldbeutilizedasemploymentareas. TheCityof Greenfield is located just farenoughfromtheCityof Indianapolis that it isabletomaintain a separate andviable local economy and also serve the communitieseast of Indianapolis. Therefore, employment opportunities should be expandedto respond to thedemandsof the futurepopulation. Local and regional access,existingconcentrationof centersof activityandexistingserviceareaswereprimaryconsiderationsforthefuturelocationof Greenfield’semploymentareas.

4-5


Useswithinthesecommercialandindustrialareaswillrangeintypesof uses.Thesefutureemploymentareasshouldbemore“regional”innaturewherethedevelop-mentdoesnot justservetheexistingpopulationintheCityof Greenfield,ratherthepopulationof HancockCountyandbeyond.Therearesevendistinctcommerceand industrial areaswithin theCity. The revitalizationeffortsof theDowntownMasterPlanfocusontheDowntownCommercialCoreandHistoricMainStreet.TheNeighborhoodCommercialNodeswillcontaincommercialamenitieslocatedinconcentratednodesatthecrossroadsof multipleneighborhoods.TheGreenfieldLifestyleCenterisanewcommerceareathatwillprovideanupscaleshoppingenvi-ronmentwithregionalandlocalaccess.TheCommercialCorridorOverlaysshouldcontaindevelopmentstandardstoensurethatnewgrowthalongUS40andSR9meets thehigher aesthetic standards sodesiredby theCityof Greenfield. TheGreenfieldCommerceParkisanexpansionof theexistingCommerceParkanditdevelopmentwouldprovideahubof industrialactivitywithprimeaccesstoI-70.TheGreenfieldResearchCampuswouldincludetheareaaroundEliLillyandwouldallowforthedevelopmentof researchtypebusinessthatofferssupportiveandcon-nectivebusinesssupport. Finally, thefuture light industrialparkwouldprovideaconcentratedlocationforGreenfield’sfuturelightindustrywithreadyaccesstotheregionaltransportationsystem.

Downtown Commercial Core and Historic Main Street

In2004,adetailedDowntownPlanwascreatedfortheCityof Greenfieldtopre-date this update. One of the recommendations of the Downtown Plan was toincorporatethedocumentintotheCity’sComprehensivePlanasanappendix.TheDowntownPlanaddressesissuesassociateddirectlywiththedevelopmentandrede-velopmentof theheartof theCity.Severalfactorswerestudiedanddetailedrecom-mendationswereidentifiedforleadership,businessdevelopment,rehabilitationandredevelopment, cultural amenities & community facilities, downtown appearanceandlanduse.

The Downtown boundaries have been identified on the Future CommunityDevelopmentPlanMap.TheDowntownPlanshouldbeconsultedandreviewedanytimenewdevelopmentorredevelopmentisproposedforthedowntownarea.DevelopmentdecisionsshouldidentifywhetherornottheproposeddevelopmentmeetsthecriteriaidentifiedintheDowntownPlan.

AsidentifiedintheDowntownPlan,theDowntownshouldremainamixof localretailandofficesuseswithsingle-familyresidentiallocatedattheedges.Multi-fam-ily residential shouldbe incorporated into thedowntownareawith residentialonthesecondfloorof retailorofficesuses.Fornewdevelopment,densityandscaleshouldbeconsistentwithexistingdevelopmentandshouldnotbefocusedonbigboxretail. Buildingheightsandsetbackshouldbeconsistentwithadjacentbuild-ingstocreateaunifiedandsolidstreetfront.Thereshouldbeaninterconnectedsystemof sidewalksthatconnecttothePensytrail.Formalgreenareas,courtyardandplazas shouldbe continued and enhanced. Pedestrianorienteddevelopmentsuchasoutdoordiningshouldbeorientedtothestreetwithparkingonthesideorintherear.Drive-thrusshouldbeprohibitedastheywouldcausetrafficissuesandbeoutof characterwiththeexistinglanduse.Landscapingshouldbeencouragedthroughtheuseof streettreesandplanters.Signageshouldbeincorporatedintothecharacter;howeveritshouldnotbethefocalpoint.Banners,awnings,projectionandneonsignsshouldbediscouraged.

4-6


Neighborhood Commercial Nodes

FourcommercialnodeshavebeenidentifiedwithintheCityof Greenfieldthatwillcontainneighborhoodretailservicesandfocusontheday-to-dayactivitiesof theresidentsinthesurroundingneighborhoods.Thelocationsof thesenodesinclude:US40andayetasunnamedroad,MacKenzieRoadandMeridian,SR9andCR200andUS40and400East.Thesenodeswillbeprimarilyretailandofficesthatwillbesmalltomediumscalethatarenolargerthan##squarefeetoccupyingnomorethan##acres.Thesequadrantswouldincludestandalonebuildingsorasmallstripcenter.Suchusescouldincludesmallconveniencestorethatcontainsgaspumps,pizzashops,drycleaning,coffeeshops,abank,insuranceoffice,realestateoffice,small restaurant, veterinary office, jewelers, etc. Additional one ormore of thecornerscouldalsobedevelopedwithinstitutionalusessuchasachurch,schoolorcommunityfacility.Itispossiblethatcommunitynodesaredevelopedinconjunc-tionwiththeseareas.Typically,higherdensityresidentialareaswillbenestledagainsttheseareastoprovideabuffertolowerdensityresidentialareas.Buildingsshouldbelocatedanddesignedsimilartotheexistingcharacterof residentialdevelopment,withtheheightof thebuildingsnohigherthantwostories.Vehicular,pedestrianandnon-motorizedconnectivitybetweenadjacentusesandstrongconnectionstoadjacentarterialsandcollectorroadsshouldberequired.

Greenfield Lifestyle Center

Inexaminingthemarketpotentialfortheeastsideof Indianapolis,anoticeablegapin services canbe identified regarding a regional retail presence. Greenfield cur-rentlyhasamixof localandcommunityregionalretail,howeverthebusinessesonewouldtypicallyfindinaregionalshoppingfacilityisunderserved.

Itisrecommendedthatalifestylecenterbecreatednorthof I-70andwestof SR9,asthisareahasbeenselectedduetoitsaccessandvisibilityfromI-70andtheloca-tionof itisincloseproximityof existingdevelopmentintheCity.Alifestylecenteristypicallyanoutdoorshoppingcenterormixed-usecommercialdevelopmentthatcombinesthetraditionalretailfunctionsof ashoppingmallbutwithleisureameni-tiesoriented towardsupscale consumers. Examplesof lifestyle centers areClayTerraceinCarmelandMetropolisinPlainfield.

ShouldadeveloperapproachtheCityaboutthepossibilityof developingalifestylecenter,thereareseveralprinciplesthattheCityshouldconsiderinitsreviewof suchadevelopment:

Principle One: Focused UsesA lifestylecentercontainsvery focused retailbaseduses includingentertainment,retail,restaurantsandasmallcomponentof office.Thedevelopmentshouldgen-erallybeabout500,000squarefeetandcontainabout80,000squarefeetof office.The uses found in the lifestyle center should contain retail that draws regionalcustomersversusunique, specialty storeswhichwouldcompetewithGreenfield’sDowntown,which alsohave thepotential todraw regional customers,only for amuchdifferentproductandexperience.

Principle Two: Central SpineLifestyle centers contain retail uses that are generally located along and facing acentralspine.Thespineshouldbedesignedtobepedestrianfriendlywithlimited

4-7


on-streetparkinglocatedalongthespine.Rather,parkingshouldbelocatedbehindtheretailstores.

Principle Three: Large-Scale DevelopmentLifestylecentersdrawfromaregionalmarket.Therefore,twotofouranchorstoresaretypicallylocatedattheendsof thedevelopmentwithregionalandnationalretailstoresandrestaurantslocatedinbetween.Anchorstorescanrangefromtraditionaldepartment/discountstorestoentertainmentvenuesliketheaterstosportinggoods,homestoresorbookstores.

Principle Four: Synergy Between UsesLifestylecentersaredestinationplaces.Theirusesshouldbecompatibleandplayoff one another inorder todrawpeople to the area. The locationoff I-70willprovidehighvisibilityandallowforeasyaccesstothesite.Thetopographyaroundthesitewillcomplimentthesynergyof theusesbyprovidinganaturalamenityandbyprovidingthehighestandbestuseof thelandinthatlocation.

Principle Five: Provide for AccessibilityLifestylecentersaredesignedwiththepedestrianinmindandcontainelementsthatallow forwalkabilitybetween retail, entertainment, restaurant venues andparkingareas. Sidewalks should be incorporated into the design and buildings should belocatedasclosetothestreetaspossible.Pedestrianamenitiessuchasbenches,coor-dinatedtrashreceptacles,directionalsignage,andlightingshouldnotonlybepro-vided,butshouldcoordinatedasacohesiveelementtothecentersoveralldesign.

Principle Six: Appropriate ThemesBecause of the regional nature and the scale of the lifestyle center, good designthemesareusedtoreinforcetheentertainmentanddestinationorientednatureof the center. Human-scale building fronts, open spaces and distinctive streetscapearepotentialtreatmentsthatcreateanoveralltheme.Thiswillbeespeciallyimpor-tantsincetheLifestylecenterislocatedatamajorgatewayintothecommunityforGreenfield.

Principle Seven: Corporate MarketingTobringpeopletothelifestylecenter,coordinatedmarketingbetweenthecommu-nityandtheLifestyleCenteraswellasamongtheretailvendorsismoreprominentthanothertypesof venuesforcrosssellingandmarketingof thearea.Itwillbecriticalthatthetypesof useslocatinginthislifestylecenternotcompetewiththedowntowncustomerbasedrawingpeopleandbusinessesfromthedowntown.Inevaluatingproposals,asingledevelopershouldbedesired toassistwith thecrosspromotionof theentirecenter.

Fifteen and Thirty Year Growth Boundary Recommendation

InupdatingthisComprehensivePlan,noticeablegapsinthefabricof developmentemergedwith the leapfroggingof development away from the center core. Thepatternof developmentcreatesinefficienciesinprovidingCityservicesaswellasahighercostof development.TomaintaintheCity’sdevelopmentpatternandqualityof development,theCityisembracinga“growthboundary”tohelpencourageinfillandreinvestmentat thecorewhereexistingservicesalreadyexist. Infilldevelop-mentisthedevelopmentoruseof vacantpropertiesthatexistwithinthecoreof thecommunity.

4-8


There are several large areas within the City which present infill developmentopportunities. These areas shouldbeof thehighest priority for future develop-mentbecausetheyalreadycontainservicesandaremostcapableof absorbingtheimpactsof newdevelopment.Therearealsootherareaswithscatteredvacancies.Infilldevelopmentcanbecompletedbyasinglebuilderforasinglehome,byasingledeveloperformultiplehomes,orbyagroupsuchasHabitatforHumanitywithoutunduelimitationstostandardbuildingpractices.

TheCityshouldusesuchincentivesas, increaseddensity,reducelotsizes,relaxedsetback andparking requirements, theofferingof tax abatements forbusinesses,andbyenhancingandpromotingthepresenceof existingintheseareasinsteadof payingtoextendedutilitiestoanundevelopedsite.Incentivesregardingzoninganddevelopment process include developing a fast track and streamlined permittingprocessandzoningformixed-usedevelopment.

Commercial Corridor Overlays

TheCityof Greenfieldshouldestablishthreecommercialcorridordistricts:oneforSR9,US40andI-70.Thepurposeof establishingtheseareasasoverlaydistrictsistocreateapublic/privatepartnershipforenhancingthelanduseandtheaestheticqualityanddesignalongthesecorridors.Thesecorridorswillretaintheirregionalnature.Interstate70willcontinuetobethehubforindustrialdevelopment,whileSR9willcontinue toserveas theregionalcommunity retail sectorandUS40asthedowntownarterywithitsmorelocal,specializedretailusesthatattractregionalconsumers.

TheSR9,US40andI-70corridorsplayan important transportationfunction inmovingtraffic,anddevelopmentpatternsalongthesecorridorsto-datehavecreatedanumberof transportationissues.Fromalanduseperspective,managinglanduses,signage,locationof developmentonthelot,typesof usesandaccessmanagementcanplayasignificantroleinminimizingtransportationconflicts,increasingaesthet-icsalongthecorridorandcreatinganidentifiablegatewayintothecommunity.

Interstate70andUS40stillhave largeparcelsof land thatareundevelopedandthereareseveral“missing”teethtoinfillalongSR9betweentheexistingdevelop-ment.Muchof thedevelopmentalongthesecorridorshasoccurredwithoutsignifi-cantregardtoacohesivedevelopmentthemeorplan.BecausetheseI-70,SR9andUS40aremajorcorridorsintothecommunityandbecausetheyserveasthespinefor transportationmovement,adetailed landusestudyfor theredevelopmentof portionsof SR9andtheinfillof missionteethisrecommended,andshouldoccurpriortothecreationof thecorridoroverlaydistrict.

TheCorridorOverlayDistrictwouldbeatransparentzonethatliesontopof theexistingzoningforSR9,US40andI-70.Thisoverlayzonewouldaddadditionaldesign standards or restrictions above those required in the existing zoning, andexcludecertainusesfromdevelopmentintheseparticularcorridors.Theremainderof theprovisionswouldbethoseof thebasedistrict(existingzoning).Foreachof thesecorridors, theoverlaydistrictwouldbeusedtocreateaunifyingstreetscapeprogram and design standards that limitmonotony, control traffic problems andsignage,andrequireopenspaceandlandscaping.TheCitywouldreviewproposeddevelopments within these corridors for: lot size, accessory buildings, buildingheight,architecturaldesignfeatures,landscaping,storageandloadingareas,parking,lighting,signage,andaccesspointsonmajorroads.

4-9


Greenfield Commerce Park

Overthepastdecade,theCityof Greenfieldhasinvestedinthecreationof whatisnowknownasCommercePark,whichislocatedjustsouthof I-70andeastof SR9.Thepurposeof thisdevelopmentwastoprovideanareawithintheCityinwhichtogenerate jobcreationthroughlight industrialandofficeuses.TheCitywanted,and still wants, to continue to promote well planned development and preserveadditionallandalongI-70forfuturejobgrowth.Therefore,itisrecommendedthatadditionallandbedeveloped,preferablytothewestof FortvilleRoadandsouthof I-70andnorthof I-70justwestof SR9.TheseareasareimportanttotheCity’sabilitytoprovidethehighestandbestuseforeconomicdevelopment,thereforetheCityshouldpreservetheseareasforlightindustrialandofficedevelopmentastheinterstateprovideskeyaccessand locationfor thesebusinesses. Additionally, theCityhasestablishedapolicythatdistributionfacilitiesarenotanappropriateuseintheseareasbecauseof thelimitedamountof jobsassociatedwiththistypeof use.

Greenfield Research Campus

On the south side of US 40, west of Franklin Road, Eli Lilly has developed aresearchcampus.Furtherdesignationof thislandforthisparticularusewillcon-tinuetoallowEliLillytogrowandexpandinGreenfieldandprovidejobsforthelocal economy. Therefore, toprotect this area andencourageother similarbusi-nesses to locateclose to theEliLillyCampus,a researchcampusdesignationhasbeengiventotheEliLillypropertyontheFutureCommunityDevelopmentPlanMap.Employmentusessuchasoffice,research,bioindustryandhightechnologyuseswith limited supporting commercial shouldbepromoted in this designationandonthenorthsideof US40.

Nodes and Pathways

Community Nodes/Neighborhood Hubs

Inthebasicbuildingblocksof everycommunityarecommunityfacilitieswhicharetheheartandspiritof activityinthecommunity.ThecommunitynodedesignationforGreenfield is thegeneral creationof acentralhub, some typeof communityfacility(firestation,park,school,church,communitycenter,andlibrary)withineachneighborhood.

While theplacementof thenodesdoes take into account the locationof futurecommunityfacilities,ingeneral,thecommunitynodeshouldbelocatedwithinwalk-ingdistancesfromthesurroundingneighborhoodsthatareacceptablefortheaver-ageperson.Foranadult,fiveminuteshasbeendocumentedasoptimumwalkingdistancebetweenthehomeandcommunitynodes.Beyondthisfiveminutedistanceitislikelythatpeoplewillusetheircars.TheCommunityDevelopmentPlanmaprepresents the optimal placement of these nodes so that Greenfield’s neighbor-hoodsaresupportbythisnodalsystem.

4-10


Historic Corridor Enhancements

US 40 has been identified as a historic corridor in the Future CommunityDevelopmentPlan.Severallocalspecialtyshopshavelocatedalongthiscorridorinthedowntownarea.ThereareseveralvisitorstotheCitythattravelalongUS40lookingforantiqueshopsandotherspecialtyretail.DowntownGreenfieldprovidesoneof thosedestinations.WhiletheCityhassomespecialtreatmentssuchasland-scaping,bannersandlightinaportionof itsdowntown,thistypeof themingshouldbecontinuedalongUS40.Adesignstudyshouldlookatthedifferentsegmentsof US40todevelopadesignthemefromoneendof thegatewaytotheother.Thethemingidentifiedforthewesternsegmentof thecorridorwillbedifferentfromthedowntownandeasternsegmentsduetothechangesinlanduse.Thecharacterof thesesegmentswillbedifferentandthelandusewillplayakeyroleinhelpingtoestablishthatthemeandtreatmentfortheroadway.Additionallyanoverlaydis-trictshouldbeenactedheretoprotecttheexistingdevelopmentensuringthefuturedevelopmentiscompatibleinscale,typeandarchitecture.

Greenfield Parkway

As the City continues to build out, additional burden will be place on the localtransportationsystem,especiallySR9.Additionalnorth/southandeast/westaccessis needed. With the amount of residential development, theFutureCommunityDevelopmentPlanMapillustratesaproposedrecommendationtocreateaparkwayintheCitytohelptransportresidentsfromtheneighborhoodstotheinterstateandtootherareaswithin thecommunitywithouthaving touseSR9orUS40. TheproposedconceptualroutewouldincludeNewRoad,CR400,FranklinRoadanda connectionon thewest sideof theCity. For thepurposesof establishing theparkway,asuggestedlocationwasidentifiedforthewestsideof theCity.AstheCityupdatesitsthoroughfareplan,theexplorationof thelocationof thatwesternsegmentwillneedtobeaddressed.

Withthequalityof developmentandthecommunityasamajorissueforresidents,the City, during the update of the thoroughfare plan, should develop a corridortreatment for theparkway to increase aesthetics for thisprimarycorridor. SomeelementsthattheCitymightconsiderforthisproposedParkwayisornamentalstreetlighting, landscapingwith shade trees andperennialplantings,wayfinding signage(withgraphicorientation),pedestrianwalk/greenwayconnectionwithappropriategraphicsignagealongthetrailroute.Thepathwaycouldbeeitheron-streetorsepa-ratefromtheroadwaybyaplantedparkwaystrip.

Gateways

Gatewaysarethoseareaswhichareseenasprimaryaccesspointsintothecommuni-ty.Thegatewaysshouldbedevelopedwithauniquecharacter,whilegivingpromi-nencetoparticularaccesspointsintheCity.TheFutureCommunityDevelopmentPlanMapidentifiesfivelocationsforgatewaysintothecommunity.Thesegatewaysare broken down into two types of gateways; PrimaryGateways and SecondaryGateways.TheprimarygatewaysareI-70andSR9,US40and200West,US40and400EastandSR9and300South.TheseareasserveastheprimaryentrancesintotheCity.OnesecondarygatewayhasbeenidentifiedatSR9andMcKenzieAvenue.Thisgatewayemphasizesthecommunitycommercialdistrictandthetransitionin

4-11


usestoresidential,officeandspecialtyretailshops.Newdevelopmentorredevel-opmentthatisproposedfortheseareasshouldbecarefullyreviewedforaestheticimprovements,qualityof developmentandtypesof uses.

Gateway Recommendations

1. Primary Gateways

Primarygatewaysarethoseareaswhichareconsideredtobethemajor accessroutesintoGreenfield.Currentlythesegatewayshavemoderate developmentthathadsurroundedtheentranceway.Thereforeitis importantfortheCitytocreategatewayenhancementrecommendations toguidenewdevelopmentandtheimprovementsof existing developmentandpublicright-of-way.TheCityhasanopportunity toensurethathighqualitygrowthislocatedintheseareas.Therearefour primarygatewaysthathavebeenidentifiedincluding:I-70andSR9, US40and200West,US40and400EastandSR9and300South.

ThereareseveralactionsthattheCityshouldtakeforPrimaryGateways.

• LimitCurbCutsalongthecorridor–Theadditionof individualcurbcutswillcontributetoanalreadycongestedroad. Limitingcurbcutsandrequiringsingleaccesspointswithina developmentcontributestoasmoothflowof trafficandprovides theopportunitytoenhancethegatewaywithsignageand landscaping.

• Appearanceof Signage–Theimpropertypes,placementand scaleof signscontributetopoorappearanceandasenseof a gatewayandcorridorof beingnothingmorethanan advertisement.Signageshouldbegroupedtogetherwith coordinatingmaterialsinsteadof individualsignage.Businesses shouldhaveanidentificationsignonthebuilding,howeverthe useof additionalpolesortheupwardexpansionof abuildingto placeasignshouldbediscourageinprimarygatewayareas.

• Architecturalstyleof buildings–Buildingslocatedintheprimary gatewayareashouldbeconsistentandcompatibletooneanother. Thecompatibleusesof buildingmaterials,includingarchitectural styleandcolorcontributetoacohesivegateway.Thisgives distinctionandcharactertothegateway.

• ParkingandLandscaping–Buildingswithlargesurface parkinglotslocatedwithinthegatewayareashouldhave vegetativeplantingstobufferorsoftenthedevelopment.This isespeciallytrueinolder,moreestablishedgatewayswherepast landscapestandardswerenotassignificantorcreativeaswith morerecentdevelopment.Parkinglotswithoutlandscaping,or withveryminimallandscapingshouldnotoccupylargeareasor entireparcelswithinagatewayareaasthisportraysasenseof underutilization.Theuseof plantingsinamedianoralonga rightof waycanbeutilizedtovisuallyenhanceanarea. Additionallytheuseof fencingmaterialsuchassplitrailor wroughtironfencecanbeusedasavisualscreentobuffer parkinglots.

4-12


• Lighting-Ingeneral,lightingusuallyexistsmainlyatintersections andinteriorparkinglots.Lightingcanbeusedincreativewaysto enhanceanareaandprovideafeelingof securityatnight. Lightingstylescanalsobeutilizedtodevelopauniquecharacter forthegateway.Theuseof decorativelightingstyles,alongwith coordinatedlandscapingandspecialdesignelementshelpsto createastrongsenseof identityforthegateway.

• Monuments-Theuseof communityidentitymarkers, illuminatedpylonswithlarge,ornamentalplanters,and/orstand- alonebannerpolesinthemedianwillhelptocontinuegraphic continuityandintensityfromthegatewayalongacorridorand giveanareacharacteranddistinction.

2. Secondary Gateways

SecondaryGatewaysisthoseareaswhichareconsideredtobe secondaryaccessroutesintothecommunity.Secondarygatewaysare establishedwithdevelopmentandusedprimarilybylocalresidents.Since developmentisalreadyestablishedintheseareas,improvementstosignify agatewayarelimitedtovisualimprovementsincludinglandscaping, signageandtheuseof monumentsthatwillhelpcallattentiontoanarea. Becausetheseareconsideredsecondarygateways,significanttreatmentis notneeded.Greenfieldhasonesecondarygatewaythathasbeen identifiedforSR9andMcKenzieAvenue.Thisgatewayemphasizesthe communitycommercialdistrictandthetransitioninusestoresidential, officeandspecialtyretailshops.

ThereareseveralactionstheCityshouldtakeforsecondarygatewayareas including:

• Appearanceof signage-Thecurrenttype,placementandscale of signscontributetoapoorappearanceandasensethatthe gatewayisnothingmorethananadvertisement.Signageshould begroupedtogetherwithcoordinatingmaterialstoreplacethe currenttrendof severalindividualsigns.Businessesmayhave asignonthebuildingforidentification;however,theuseof additionalpoleormonumentsignsshouldbediscouragedin primarygatewayareas.Communitywayfindingdirectionalpylons andsignsshouldbeusedtowelcomevisitorstothecommunity andpointthemintherightdirection.

• ParkingandLandscaping-Buildingsandlargesurfaceparking lotslocatedwithinthegatewayareashouldhavevegetative plantingstobufferorsoftenthedevelopment.Thisisespecially trueintheolder,moreestablishedgatewayswherepastlandscape standardswerenotassignificantorcreativeaswithmorerecent development.Parkinglotswithoutlandscaping,orwithvery minimallandscapingshouldnotoccupylargeareasorentire parcelswithinagatewayareaasthisportraysasenseof underutilization.Theuseof plantingsinamedianoralonga rightof wayshouldbeutilizedtovisuallyenhanceanarea. Additionallytheuseof fencingmaterialsuchassplitrailor wroughtironfencecanbeusedasavisualscreentobuffer parkinglots.

4-13


• Monuments-Theuseof communityidentitymarkers, illuminatedpylonswithlargeornamentalplanters,and/or stand-alonebannerpolesinthemedianwillhelptocontinue graphiccontinuityandintensityfromthegatewayalongacorridor andgiveanareacharacteranddistinction.

Parks, Greenways and Trail SystemTheCityof Greenfieldhasplannedatrailsystemaspartof theirlastcomprehensiveplanupdate.Overthepastfiveyears,asnewdevelopmenthasbeenapproved,thecommunityhasworkedwiththedevelopers toconnect thetrail systemstogether.TocontinuetotieneighborhoodstogetherandcreateanoverallsystemplanfortheCity,theseveralimprovementstotheparksystem,greenwaysandtrailsystemhavebeenrecommended.

TheCityof Greenfieldhasseveralparkswhichpredominatelyservethecoreandareasnorthof US40.Sincegrowthisexpectedtocontinuetogrowtothesouthof US40andnorthof I-70,asthepopulationincreases,theseareascouldpotentiallybeunderserved.TheFutureCommunityDevelopmentMapidentifiestwoadditionalparkstobeaddedinthefuture.Onepotentialareaissouthof 200Southandwestof BrandywineCreekthatcouldbedevelopedasaparkinthefuture.Thiswouldservethesouthernpartof theCity.Thesecondparkisproposedtothenorthof I-70,duenorthof theLifestyleCenter.Thisareahassignificanttopographywhichwouldmakeanicepark toserve thenorthsideof theCity. These locationsaresomewhatconceptual,butprovidetheparksdepartmentandthePlanCommissionsomegenerallocationstoreviewwhennewdevelopmentsareproposed.

Additionally,thegreenway,trailandpathnetworkhasbeenexpandedfromthe1997ComprehensivePlan toprovide access tonewdevelopment. BrandywineCreek,LittleBrandywineCreek,PottsDitchandPensyTrailserveasthemajorgreenwayandmulti-usetrailspinesinthecommunity.Theseareaswouldconnectmanyof theotheroff-streetandon-streettrailsystemstocreateacohesivepedestriansystemfortheCity.ItisanticipatedthatBrandywineCreek,LittleBrandywineCreekandPottsDitchwouldremaininanaturalstateandcouldcontainanaturaltrailareainsome locations thatdonothave topographical issues. Severalon-streetbikewayshavebeenidentified.MostnotableisthebikewaythatwouldbealongtheproposedParkwayof 200South,400East,200Northandanewnorth-southstreet.Otheron-streetbikewaysareproposedfor300North,NewRoad,MacKenzieRoad,ParkAvenue,TagueStreet,FranklinStreet,andayetunnamedtrailconnectionwestof FranklinStreet,connectingseveralsubdivisionsfromtheproposedParkwaytoUS40.Severalothersmallconnectionsforoff-streettrailshavebeenidentifiedtocon-necttheneighborhoodnodestothetrailsystem.

Besidesatrailprogram,sidewalksareanotherusefultooltohelpcompletedasystemwidepedestriannetwork.Allnewdevelopmentshouldhavesidewalksthatconnectneighborhoodswithparksandothercommunityservices.TheCityshouldunder-takeacomprehensivesidewalkinventorytoidentifywheresidewalksarelackingandthosesidewaysthatneedtobeimprovedorupgraded.

Asnewsubdivisiondevelopmentsareproposed,whethertheyaretraditionalsubdi-visionsorPlannedUnitDevelopments(PUD),theyshouldbereviewedincontextof thistrail,greenwayandsystemplanandif possible,requirenewsubdivisionstoprovideconnectionsthosetrailandsidewalkconnectionsarepartof theirimprove-mentstotheland.

ChapTer 5: implemenTaTion


5-1


IntroductionMeetingswiththecitizensandsteeringcommitteereinforcedthatappearance,designandqualityof developmentshouldbethefocusof thisplan.Therefore,thereisastrongemphasisondesignprinciplesthroughoutthisComprehensivePlanupdate.

TheFutureCommunityDevelopmentPlanMapfocusesoncreatingactivitycentersthroughthepromotionof communitynodesandcommercialnodes.Theintentof thisPlanistocreateandfosterstrong,traditionalneighborhoodswhicharetheheartof howthecommunityhasstayedinitscompactform.Stripdevelopmentshouldbe limitedby thecreationof fourcommercialnodeswhichare toprovidemixeduse localservicessuchascommercial,office, institutionalsurroundedbyahigherdensityresidentialmix.

Theotherbackboneof theFutureCommunityDevelopmentPlanMapisthetrails,greenways and sidewalks which connect these commercial nodes and neighbor-hoodstothecentralcore.Roadsshouldcontinuetobedesignwithagridormodi-fiedgridpattern topromote connectivity. Trails, greenways and sidewalk shouldbe incorporated intonewdevelopments toconnect toexistingdevelopmentsanddevelopedareastoprovidesafe,convenienttravelsthatmakeallareasaccessibletopedestriansandbicyclist,runnerstoprovideahigherdegreeof connectivity.

Thedevelopmentof corridorsisapriorityof thisPlan.Understandingthatroadsservemanydifferentfunctionsinadditiontotrafficandthecreationof anidentitythrough placement of land uses, and coordination of lighting, signage and land-scapingallpromoteeconomicdevelopmentandthelocationof apremierbusinessdistrict.

Neighborhood RecommendationsIt isrecommendedthattheCityfocuscommercialandindustrialgrowthatprimelocationsthatofferthehighestlevelof infrastructureandregionalaccess,encourag-ingnodaldevelopmentversusscatteredorstripdevelopment.

Greenfield’soverallgrowthpolicyistoestablishacommunityof traditionalneigh-borhoods,encouragingthehighest levelof intensitythat localsiteconditionswillsupportandinfillingunderutilizedorvacantlandtokeeptheCitycompact.

The City of Greenfield has experienced tremendous residential growth over thepastdecade.Whilethehousingmarkethasshiftedin2004,growthisstilloccurring,albeitnotasquicklyasduringthehousingboomof theearly2000’s.Severalsteeringcommitteemeetingsweredevotedtodiscussinghousingmix,typeof housingandqualityof housing.Asnewresidentialgrowthcontinues,concernsareraisedregard-ingthequalityof newdevelopmentandif itismeetingtheneedsof thegrowingpopulation,providingopportunitiesforallgenerationstoliveinGreenfield.

In order to address these issues, one of the recommendations of the plan is tocreateaneighborhoodandresidentialstrategytokeepGreenfield’sneighborhoodsstrong,healthyandviable.Duringthisprocess,informationwascollectedregard-ingGreenfield’shousing. Itwassupplementedby informationgatherbytheCityregardingfuturedevelopmentproposals,bothapproved,inprocessandanticipated.Itwas estimated that theCitygrowth in a20yearperiodwould require approxi-matelyXXhousingunits.Withanticipatedandapproveddevelopment,over6,500unitswillbeavailableover thenext20years. This ismorehousing thanwhat isneededbythecommunityduringthistimeperiod.

5-2

Chapter 5: Implementation

Toensurethatnewandexistinghousingdoesnotdeteriorateandimpactthesta-bilization of the neighborhoods, a strategy is recommended tomonitor housingand the neighborhoods. This strategy centers around three elements includingassessmentandcategorizationof residentialareasbyconditions,adeterminationof whatactivitiescouldbeimplementedtoimproveeachtypeof residentialarea,andprioritizingactivitieswithinanoverallimprovementstrategy.

Inthisplan,theneighborhoodsweretheorganizationalstructurefortheCity.Oftentimes,thevitalityof thecityitself areoftendeterminedbythevitalityof theneigh-borhoods. Similarly,citiesareoftenviewedintermsof vacantbuildingsand lotsandhowtheyrespondtotheneedtoredevelopcertainareas.

ImplementationTheGreenfieldComprehensivePlanreflectsathirtyyeartimeperiod.Thisplan-ningperiodallowsadequatetimetoimplementnewdevelopmentordinances,landusepatterns,transportationnetworksandfacilityplans.Capitalimprovementfund-ingstrategies,fundingsourcesandplanningtechniquesareimportantfacetsof theComprehensivePlan’simplementationandultimatesuccess.

Thepreviouschaptersof thisPlanfocusedon“what”todo,“where”todoit,withanunderstandingof “why” itneeds tobedone. While these items are certainlyimportant,theyarenotadequatetoensurethattheplanissuccessfullyimplemented.“When” and “who” are components that alsomust be considered in developingactionitemstofollow.Implementationisthephaseof theplanningprocesswhichturnstheactionsteps,asstatedintheplan,intorealities.Whilethevariouscom-ponentsof thisPlancontaingoalsandpolicystatements,specificimplementationstrategiesand techniqueshavebeenpartially identified. Sincemethodsof imple-mentationareissue-specific,identificationof allpossiblealternativesforachievingadesiredendisnotfeasible.Inmanycircumstances,itwillbenecessarytodevelopandadoptdetailedplansorstudiespriorto implementation. Inaddition,policieslistedinthisplanhavenotbeenprioritizedastotheirrelativeimportance.

Administering the PlanThe text of this Comprehensive Plan and its accompanyingmaps represent the“vision”of Greenfield residents for the futuredevelopmentof their community.Thefocusof thisPlanisaconceptualFutureCommunityDevelopmentPlanMapthatvisuallydepictsthedevelopmentof areaswithintheGreenfieldPlanningAreautilizingavarietyof landusemanagement techniques. Thismap is theresultof citizenandcommunityleadershipinputthatisrepresentedintherecommendationsof thisPlan.

TheFutureCommunityDevelopmentPlanMapillustratedinChapterXXof thisPlan provides conceptual snapshots of how the Greenfield Planning Area willlook in2025. Theuncertainty associatedwith the timing and locationof futuredevelopmentrequiresthecommunitytoremainflexibletowardsthefuturesmanypossibilities.

5-3


How should the plan be interpreted?Thecomprehensiveplanshall serveas thebasicpolicyguidefor theCityregard-ing futuredevelopment and redevelopment. The comprehensiveplan contains astatementof goals,policiesandrecommendationstoguidenewdevelopmentandredevelopment in theCity. TheCity’sdevelopmentordinancesshouldbewrittento implement the vision of the plan. When a new annexation, rezone, plannedunit development (PUD), subdivision or site plan review request is filewith theCityplanningdepartment, theCityplanningstaff should reviewandevaluate theapplicationby thecomprehensiveplanandordinancesandprovideastaff reportwithaformalrecommendationtothePlanCommissionregardingthisapplication.Thestaff reportshouldincludeanevaluationof thedevelopmentandthedegreeinwhichtheproposedapplicationconformstothegoals,policies,recommendationsandFutureCommunityDevelopmentPlanMap.

Bynature,comprehensiveplansareprimarilyconcernedwithacommunity’sphysi-caldevelopmentandthosecityactionswhichcanreasonablybeexpectedtoinflu-encedevelopment.Forthesereasons,whileitimportantforacommunitytoidentifyandassesscurrentissues,theplansprimarypurposeistolookpastthecurrentissuestoidentifyadesiredoutcome.

Thecomprehensiveplan is a guidancedocument. The long rangeobjectives areintendedtoguidedevelopmentdecisionstowardsthecommunity’scollectvisionof thefuture.Membersof theGreenfieldPlanCommissionshouldinterpretthelong-termanddeliberatelybroadobjectivesandvisionbysaying,“thisiswhatwevalueinourcommunity,andgiventhefactthatwecannotexpecttocontroleverything,thisisgenerallywhatwewantourcommunitytobelikeinthefuture.”

Conversely,thestrategicactionstepsareintendedtoguidetheday-to-daydecisionsconcerningmorespecificandtaskorientedactivities.Membersof theGreenfieldPlanCommissionshouldinterpretthestrategicactionsstepsbysaying,“givenourlong-term goals and changing community conditions, these are the projects andprogramsthatwewanttocompleteintheshort-term,andthisishowweplantoaccomplishthem.”

Therefore,while theGreenfieldComprehensivePlandoesnot contain the actualdecisionsthatmustbemade, itdoesserveasareminderof thecommunity’scol-lectivevisionforthefuturedevelopmentof theCityandshouldbeinterpretedassuch.

How should rezones be treated?

Zoningprotectstherightsof propertyownerswhilepromotingthegeneralwelfareof thecommunity.Thepurposeof zoningistolocateparticularlanduseswheretheyaremostappropriate, consideringpublicutilities, roadaccess, and theestab-lisheddevelopmentpattern.

Ingeneral,arezoneisonlyjustifiableunderthefollowingcircumstances:

• whentherequestedrezoningisconsistentwithlongrangeland useplansadoptedbytheappropriategoverningbody;

• whentherewasanerrororoversightintheoriginalzoningof the property;

• whenchangeshaveoccurredtoconditionsinthevicinityof the

5-4


propertywhichpreventthereasonableuseof thepropertyas currentlyzoned;and

• whentherequestedrezoningbenefitsthecommunityatlarge.

Rezonesshouldnotbegrantedbecauseof asinglehardshipexpressedbyapropertyownerorgroupof propertyownersas theCommunitiescollectivevisionfor thefutureisnotnegotiable.

ShouldthePlanCommissionfinditself grantingnumerousrezonesthatareother-wisesubstantiallyinconsistentwiththeFutureCommunityDevelopmentPlanMapfound in the Comprehensive Plan, the Comprehensive Plan should be updated,for this is an indication that the City’s conditions, issues and/or priorities havechanged.

How should areas be annexed into the City?Annexationistheprocessof addingunincorporatedpropertytotheboundariesof anincorporatedmunicipality.Annexationistheprocessbywhichcitiesandtownsexpandtheirboundaries.

Annexation can be initiated by theCity (involuntary annexation), or by propertyowners(voluntaryannexation).TheCityof Greenfieldistakingastrictapproachto annexation. Therefore, it is recommended that applicants proposing a volun-tary annexation meet with planning staff prior to submitting an application fora Voluntary Annexation Permit to discuss availability of both capital and non-capital services such as utilities and police and fire protection, and to determineconformanceof therequestwiththe landusepoliciesoutlined inboththeCity’sAnnexationStrategyandtheCity’sComprehensivePlan.

Annexationsshouldcomplyanddemonstrate,rathersubstantially,thatthereissuf-ficientcapacitywithin thecommunity’sotherwise limited resources to sustain thelevelof serviceexperiencedbyexistingresidentsof thecommunity.

What are the elements that the City should review when approving developments?

TheGreenfieldPlanCommissionshouldreviewplanneddevelopmentsandsubdi-visionplatsforconformitywiththeprinciplesandrequirementsof theGreenfieldComprehensivePlan,ZoningandSubdivisionControlOrdinances,andanyotherordinancesthatdealwithimprovements.Eachdevelopmentshouldbereviewedtodetermineitsconsistencywiththefollowing:

• Thecommunity’scollectivevisionforthefuture;

• TheFutureCommunityDevelopmentPlanMap;

• Theinterestsandregulatory,administrativeandfinancial responsibilitiesof thePlanCommission;

• Environmentalconcernssuchasnaturalresources,conservation/ preservation,floodplainsmanagement,stormwatermanagement throughoutthecommunity;and

5-5


• Theneedsof thecommunitysuchashousing,economic development,recreationandopenspace,publicfacilitiesand services,trafficcirculation,andcapitalimprovements.

Likeannexations,approveddevelopmentsshouldcomplyanddemonstrate,rathersubstantially,thatthereissufficientcapacitywithinthecommunity’sotherwiselim-itedresourcestosustainthelevelof serviceexperiencedbyexistingresidentsof thecommunity.

Action ProgramsThe following implementation “tools” or action programs are suggested as pos-siblemeans for successfully implementing thisPlan.The selectionof theproperimplementationtools isan importantdecisionthatwillaffect thefutureof manylandownersandcurrentandfuturecitizensof theCityof Greenfield,andmeritsextensiveconsiderationfollowingtheadoptionof thisPlan.

Thesuccessfulcompletionof eachof therecommendedactionstepsof thisPlanwouldtranslateintothesuccessfulimplementationof thisPlan.However,limitedfunding andmanpowerwill effectively prevent all of thesemeasures frombeingcompletedatonce.Therefore,theimplementationstrategiesneedtobeprioritizedandrankedintheorderthattheyshouldbepursued.Prioritizationshouldbebaseduponthecostandbenefits,relationshiptoothermeasures,andfeasibilityof imple-mentation.

1. Adoption of the Plan

InordertoadopttheGreenfieldComprehensivePlan,thePlanCommissionandtheCityCouncilmustact.Thereplacementoramendmentof aplanrequirestheCitytofollowtheprocessprovidedbelow.ThisprocesscanbefoundinIC36-7-4-500etseq.

Foradoption,thePlanCommissionmust: • givenoticeinaccordancewithIC5-3-1,includingthedatesand

timesof themeetingsandthelocationinwhichinterestedparties canexaminetheplan;

• maketheplanavailableinitsentiretyforatleastten(10)days priortothefirsthearing:and

• holdoneormorepublichearingsontheplan.

Afterthepublichearing(s)havebeenheld,thePlanCommissionmayapprovethecomprehensiveplanandcertifytheplantotheCityCouncil.

TheCityCouncilmayadoptaresolutionapproving,rejectingoramendingtheplan.Theresolutiononlyrequiresamajorityvote.If thelegislativebodyrejectsoramendsthecomprehensiveplanbyresolution,itisreturnedtothePlanCommissionwithawrittenstatementof reasonsfortherejectionoramendment.Inthisevent,thePlanCommissionhassixty(60)daystoconsidertherejectionoramendmentandfileitsreportwiththeCityCouncilunlessgrantedandextensionbytheCityCouncil.If thePlanCommissionapprovestheamendment,theplanstandsasamendedbytheCityCouncilandiseffectiveonthedatethereportisfiledwiththeCityCouncil.If thePlanCommissiondisapprovestherejectionof theamendment,theoriginalaction

5-6


of theCityCounciltorejectoramendstandsonlyif affirmedbyanotherresolutionof thelegislativebody.If thePlanCommissionfailstofileareportwithinthetimeallotted,theactionof theCityCouncilinrejectingoramendingthecomprehensiveplanbecomesfinal.

The comprehensive plan is effective in each respective jurisdiction once it isapprovedbyresolutionof theCityCouncil.Uponapproval,theclerkof theCityCouncilmustrecordacopyof theplanwiththecountyrecorder.

2. Appointment of an Implementation Task Force

The Plan Commission should consider appointing an implementation task forcetoguidetheimplementationof thePlan.Suchataskforceshouldincludecouncilmembers, representatives of the Plan Commission, Park Board, RedevelopmentCommission,staff andcitizens.Fortheimplementationof thePlantobesuccess-ful,organizationsandagenciesassignedtoeachimplementationitemmustbeawareof theirrole,responsibility,and/orabilities.

3. Create a Plan Commission Work Plan

ThePlancoversabroadvarietyof issuesandsubjectmatter.InordertoimplementthePlan,theGreenfieldParkPlanCommissionsshould,onanannualbasis,priori-tizetheactionstepsintheComprehensivePlanforthatyearanddevelopastrategyformovingthoseitemsforwardandaccomplishingthem.

4. Continued Education of Elected and Appointed Officials

The City should strive to provide opportunities for staff, elected and appointedofficialstostayuptodateonthelatestmethodsanddevelopmentpracticesaroundthecountry forplanning. This includes sendingstaff andofficials to local,Stateandnationalprofessionalconferencesaswellasplanningcommissionerworkshopsandworksessions.

5. Ongoing, quarterly review of the Plan

Planningisnotaprocesswithadefinitivebeginningandend.Rather,itisanon-goingprocessthatreactstonewinformationanddevelopments,andtriestoincor-poratechangingconditions intomunicipalactivities. Conditions thatmaychangeincludephysicalconditionsof buildingsand/orinfrastructure,thenaturalenviron-ment,aswellassocialandcommunitygoals.

Adisciplinedscheduleof Planreview ishelpful inPlan implementation. Notingareasof thePlan’ssuccesshelpstobuildsupportforfutureplanningactivities.Theidentificationof less successful components of thePlanmay suggest a need forrefinementand/oramendment. ThePlanCommissionshouldthereforeannuallyconductathoroughreviewof thePlan,askingwhethertheconditionsonwhichthePlanwaspredicatedstillhold.Anannual“reportcard”shouldbepreparedbythestaff whichreviewsanddocumentstheactivitiesof thePlanCommission,Boardof ZoningAppealsandCityCouncilplanningcasesforcompliancewiththePlan.

Also, prior to preparing the annual municipal operating budget, an assessmentshouldbecompletedthatdocumentstheimpactsof theactivitiesthat implementthePlan.Thisassessmentshouldconsistof thefollowingactivities:

• Majordifferencesbetweenprojectedeconomicanddemographic growthratesandactualgrowth;

5-7


• Necessaryadjustmentstotheimplementationtoolsand techniques-thesemaybebroughtonbychangesinstate legislature,etc.;

• DeviationsbythePlanCommissionorCityCouncilfromthe ComprehensivePlan,andwhythosedeviationsweremade;

• RequestsforamendmentstotheComprehensivePlan,inorderto determineif thereisapatternof requestedchangesemerging; and

• Changesinthelocal/regionalpoliticalstructurethatmayaffect theimplementationof thePlan.

• Creatingageographicinformationsystem(GIS)tomaintainand updateinformationrelatingtolandusepatternsandlocations. SuchasystemwouldenabletheTown’sstaff toaccuratelytrack patternsof development,changesinpopulation,andothernew developmentspertinenttotheimplementationof thePlan.

• Identifyingtheprogramsandprojectscompletedtoimplement thePlan.

• Foreachimplementingprogram/project,developcriteriathatcan beusedtomeasuretheeffectivenessof theprogram,applythose criteria,andwriteareportsummarizingthestrengthsand weaknessesof theprogram.

• Identifynewprograms,if any,thatcouldbeimplemented.

6. Zoning and Subdivision Control Ordinance Updates

ThePlanisastatementof policy;itisnotaregulatorydocument.Themostcom-monregulatorymeans for implementing theplan includezoningand subdivisionordinances.Zoningisthemostdirectmethodforregulatinglanduse.Inadditiontorestrictinguses,zoningordinancesalsodictatethebulkof development(typicallythroughheightrequirements,floor-arearatios,andthe like)and itssiteplacement(typicallythroughtheuseof buildinglotsetbacks).Thesubdivisionordinancerelieson the rightof municipalities to regulate the subdivisionof land, andplaces theburdenof implementingpublicinfrastructuredirectlyonthedeveloper.

Significant landusechangesmadeinthisPlan,alongwiththeCity’sfocusontheoverall character of development and its image. Several zoning and subdivisionrecommendationswererecommendedthroughoutthisplanthereforetheCitywillneedtomakethesechangesinordertosuccessfullyimplementthisPlan.Withoutchanges in theCity’s zoning and subdivisionordinances, includingbut limited toincentivesforinfillandrequiringconnectionstothetrailsystem,someof thefuturelanduserecommendationsof thisPlanwillnotbeabletobe implemented. Theamendmentandadoptionof therecommendedzoningandsubdivisionordinances,by this plan, will to help assure that the intent of the City’s Future CommunityDevelopmentPlanMapisrealized.

5-8


7. Coordination between the City Budget and Capital Improvements Plan (CIP)

Theannualbudgetisoneof themostimportanttoolsforPlanimplementationinthatitsetsprioritiesforactionseachyear.CapitalandoperationalfundingdecisionsshoulddirectlyreflectthegoalsandprioritiessetforthbytheCityCouncilandthePlanCommission.

Acapitalimprovementsplan(CIP)isamulti-yearcapitalprogrammingandbudget-ingprocess.Itisrecommendedthat,uponadoptionof thisPlan,allCitydepart-mentswithcapitalrequirementscoordinateandconsolidatetheircapitalbudgetingprocessesusingtheCIPmodelwiththepreparationof theCitybudget.

ItisfurtherrecommendedthattheCitystaff coordinatetheircapitalimprovementsplanningwith theeffortsof thisPlanandanyotherdepartmentmasterplansorstrategicplans.ItemsthatshouldbeconsideredintheCIPinclude:landacquisition;stormwaterfacilities;waterandwastewatercollectionandtreatmentfacilities;roads;alternative transportation facilities (e.g., sidewalks and greenways); parks; policeandfire stations/substations; and large equipment (i.e., fire trucks and computerequipment).TheCIPshouldserveasthebasisforthestaff ’srecommendedworkprogramsandasafocusfortheCityCouncil’sdiscussionregardingprioritiesfromyeartoyearduringtheirannualbudgetprocess.

If fundsarenotavailableforaspecificrecommendation,theCityshouldevaluatewhetherthatspecificitemshouldberemovedfromtheComprehensivePlandur-ingitsannualreview.Ingeneral,whenthereisaconflictbetweenbudgetprioritiesandthegoalsandpoliciesof thisPlan,theCityCouncilshouldconsiderwhetherthosegoalsandpoliciesremainvalidforGreenfield.If theyarevalid,thentheCityCouncilshouldre-evaluatebudgetpriorities.

8. Create a Sub-area Plan

A sub-area plan provides specific recommendations for development. Sub-areaplanning,whichisplanningateithertheneighborhoodlevel,theroadcorridorlevelor for adowntownarea, is an importantfirst step to the successful implementa-tionof a comprehensiveplan.. These sub-areaplans aremoredetailed than theComprehensive Plan. Sub-area plans provide the downtown, entry corridors andexistingneighborhoodswithguidanceonconservation,revitalizationandredevelop-mentactivities.Thefirstphaseof asub-areaplanincludesthecreationof detailed,andyetconceptual,designrecommendationsandpolices.Thesecondphaseof asub-areaplan is the implementationof each conceptual design recommendation.Inthecaseof acorridororgatewayplan,thiswouldincludedevelopingconstruc-tiondocumentsandcostestimates tobuildeachgateway. Insomecasessuchasneighborhoodsub-areas,oneadditionaltaskof thesub-areaplanmaybetoacquirelandforredevelopment.

Sub-areaplanningisalsoknownforitsabilitytoleadtoanoverallincreaseincitizeninvolvement, leadership development and neighborhood commitment. The Cityshouldtakethenextstepinitsplanningprogramanddevelopsub-areaplansfirstforStateRoad9andCommercePark,aswellasidentifytargetedneighborhoodsinneedof sub-areaplans.

5-9


9. Promote Traditional Neighborhoods

Inorder to promote traditional neighborhoods, theCity needs to identify, assessandclassify eachneighborhood toknow the typesof actions to take inorder tostabilizeandmaintaineachneighborhoodsothatitishealthy.Inordertoaddressthechallengesof eachneighborhood,theCityshouldassessandclassifyeachneigh-borhood. Byclassifyingeachneighborhood, theCitywillbebetterpositionedtodelegateitsotherwisescareresourcesandtargetthoseneighborhoodsthatneedthegreatestlevelof support.

Onemethodof classificationistosimplyusetheUSDepartmentof HousingandUrbanDevelopmentcriteriaof incomeclassification. Thoseneighborhoodswithincomes below 30% of the community median household income are very lowincome;30to50%arelowincome;50to80%arelow-moderateincome;80to12%aremoderateincome.

Anothermethodthatisoftenusedconsidersavarietyof indicators,including:sub-standardhousingcodeoccurrences;crimeincidence;ageof housingstock;ageof population;buildingpermits;privatemortgage investment;city investments;aver-agenumberof dayspropertiesareon themarket;poverty; andpublicassistance.Oneof thedisadvantagesof thisclassificationmethodis thatanumberof theseindicatorsconsistof datathatmaynotbereadilyavailable,suchasinformationthatisgenerallyassignedtogeographiclocations(i.e.housingcodeviolations,buildingpermits,andcrime).

Regardless of the classification method, the community’s neighborhoods areassessed and then classified intooneof the following categories. The followingcategoriesidentifytheactionsthatneedtobetakenbytheCity.

MAINTAINthehighqualityof strongandstableneighborhoods. Strongneigh-borhoodsmaybecharacterizedbythevitalityof theirrealestatemarkets.Housesforsaleatfairpriceswillsellrelativelyquickly,indicatingthattheneighborhoodisperceivedasadesirableplacetolivenotonlybyitsresidents,butalsobyoutsiders.Housing quality is good, there are few conflicts between adjacent land uses, andsocialproblemsareminimal.Thepublicsectorstrategyinthesestrongneighbor-hoodsis,therefore,tomaintainandenhancetheexistingqualityof theareathroughstreetscapeenhancement,roadandsidewalkmaintenance,etc.Parksareoccasion-allyincludedinthesehealthyneighborhoods.

MONITORneighborhoodswithcertainsocial,economic,orphysicalcharacteristicsthatcouldbeearlyindicatorsof decline.Maintainingrentalunitswithmanagementcompaniesinneighborhoodswithmanyrenterscanensurethemaintenanceof thearea. Homeownershipcounselingasaconditionof firstmortgagesandworkingtoeliminatepredatorylendersfromthecommunitymaylimitpeoplefrombuyingmoreof ahomethantheycanaffordandaffordtomaintain.Areaswithmanynewresidents and high owner or renter turnover may need special code enforcementtopreventdeclineinpropertymaintenance.Lowerhomevaluescanbeimprovedthrough efforts to rebuild and enhance infrastructure and maintain properties.Theremaybeafewconflictsbetweenadjacentlandusesintheseneighborhoods.

IMPROVEtransitionalorproblemareas.Someneighborhoodsarecharacterizedbyamixtureof goodhousingconditionsandsomenoticeabledeterioration.Housingdeteriorationmaybeduetodeferredmaintenancebyeitherhomeownersorrentalpropertyowners. Inaddition, theremaybea lackof neededspecial services forelderly, youngorunemployed residents. Theremay alsobe specificpublic infra-structureproblemsorinappropriatecommercialorindustrialuseswithinoronthe

5-10


edgesof theneighborhood. Allof thesefactorsnegativelyaffecttheprivaterealestatemarketintheseareas.

However, none of the conditions in these neighborhoods have deteriorated tothepoint that selectivepositiveactionscouldnot substantively restore theneigh-borhoods’ attractiveness and privatemarket appeal. Here, targeted public sectorinvestmentsinthemaintenanceandrenewalof thehousingstock,essentialhumanservices or selected public infrastructure, can bring needed improvements andencourage further revitalization efforts by neighborhood residents, organizationsandotherprivateinvestors.Detailedplanningwithresidentsisneededtoidentifyproblemsanddefineappropriateactionstrategies.

CHANGE seriously deteriorated or deficient conditions. Within some of City’sneighborhoods, deterioration has progressed to the point that major correctiveaction is needed. Entire blocksmay contain amixof vacant lots andvacantorseriouslydeterioratedhouses. Inmany instances, conflictsbetween incompatibleindustrialandresidentialuseshavehelpedtocreatetheseconditions.Herethepri-vatehousingmarketisalmostnon-existent.Socialoreconomicproblemsareoftenpervasive.Intheseneighborhoods,areasof strengthandareasof weaknessmustbe defined. Detailed planning with residents, supplemented by expert technicalassistance,shouldexamineoptionstochangethoseconditionswhicharesoseriousthatbuildingrehabilitationalonemaynothelp.

10. Implement Community Aesthetic Programs

Appearance has as much to do with a strong sense of community as any otherrecommendation, if notmoreso. Designstandards,whichcanbecontainedinazoningordinance, areoneway tomakeareasmoreattractive,whileenhancingorprotectingacertaincharacterof theCity. Designstandards,however,needtobestrictlyenforcedinordertoensuresuccess.Incentiveprogramssuchasincreasingdensity,permittingzero lotand reducingyardsandsetbackscanhelpensure thatindividualsadheretothedesignguidelinesprovided.

TheCityhastakenthestepof creatingsomedesignstandardsforresidentialareas.However,creatingapremiereconomicaddress intheCitythroughitsCommerceParkwill requiredesign standards fornon-residentialdevelopment. Design stan-dardswilloffermoreregulationthandesignguidelines,andwillrequirereviewbyaDesignReviewCommittee.

Examples of non-residential design standards that couldbe added to the zoningordinance to improve the appearance of commercial and industrial areas includereducing the amount of parking allowed in the front of a building, prohibitingbuildingsfrom“turningtheirbacks”ontomajorcorridors,andkeepingserviceareas(storage, trashpick-up, loading)behind thebuilding. Architectural standards thatcouldbeputinplaceincludemassing,materials,lighting,roof pitch,visualappeal,compatibility,entrywaytreatments,walltreatments,andwindowtreatment.

Increased“streetscape”standards,especiallyalongSR9canaddresslandscapingandsignageissuesandwillprovideanoticeableeffectontheentirecommunity.Thesechangeswillbeveryeffectiveindevelopingthe“look”alongselectedroadwaycor-ridors. The City has an opportunity to participate in aesthetic improvements aspartof streetprojectsitundertakes,andcaninfluencethedesignof statehighwaysthroughproactiveinvolvement.

5-11


11. Update Thoroughfare Plan

To a certain extent, the successof the future landuse recommendationsof thisPlandependsonthesuccessfulimplementationof thetransportationimprovementsrecommended in thisPlan. Adetailed transportationplanhasnotbeen includedaspartof thisComprehensivePlanupdate. AsnewdevelopmentsareproposedbeforethePlanCommission,thePlanCommissionwillneedtoevaluatetheimpacttheproposeddevelopmentwillhaveon the transportationnetwork. Inaddition,thePlanCommissionshouldalsoconsidertheimpactsof anyimprovementssuchasturninglanes,wideningof streets,sidewalksandlinkagestothetrailsystemthatthe developermight propose. It is recommended that the thoroughfare plan beupdatedimmediatelysoasnottohinderthePlanCommissionsandstaff ’sreviewof newdevelopments.

Some regional transportation planning has been occurring, including theCentralIndianaSuburbanTransportationMobilityStudy(CISTMS)andtheupcomingIndyRegionalTransportationPlan (IRTP). Otheron-goingefforts include theMPOscontinuationof updates to theirRegionalTransportation ImprovementProgram.WhileGreenfieldisnotyetincludedintheMPO,itshouldstillmonitorandrevieweffortsof theMPOknowingthat,duetoitsrelativelycloseproximitytotheMPOsboundaries,theCitywillonedaybeaffectedbyit.Inthisway,futurechangesandimpactsthatareidentifiedbytheMPOcanberespondedtobytheCity.

12. Create an Annexation Strategy

AnnexationisakeytoolfortheCitytoincreaseitstaxbase,levelof controloverdevelopment, and provide greater opportunity to attract businesses to the area.Annexingproperty intoa jurisdiction isoftenanemotionalprocess. Annexationhelps cities provide services,manage growth and ensure their communities’ eco-nomicandphysicalwell-beingbyincreasingtheirtaxbase. AstheCitycontinuesto grow to the west, south and north, an annexation strategy will be needed todeterminethepriorityof bringingareasintotheCitylimits.Inthisstrategy,theCityshouldgiveconsiderationtoeachproposedannexationareaandthepossibletimingof annexation.Itshouldreviewthisstrategyinthecontextof thebuildoutof its15and30yeargrowthboundaries.

ItisrecommendedthattheCitycreateaseparateannexationstrategy,inaccordancewithStatelaw,includingacostestimateof plannedservices,methodormethodsof financingthoseservicesandaplanfororganizationandextensionof thoseservices.Theannexationstrategyshouldbetheendresultof adetailedannexationstudythatidentifiesandprioritizescontiguousareas tobe included in theCity’sboundaries,anddeterminesthemostappropriatelandusepotentialsanddetermineshowser-vices,if needed,willbedeliveredtothesite.ItisalsorecommendedthattheCityembarkonon-goingcommunicationwiththosethecitizensandbusinessesoutsideof itscurrentjurisdictiontotryandestablishopenlinesof communicationandsup-portforfutureannexationintotheCity.

Summary Recommendations

Whenimplemented,theaboverecommendations,goals,objectivesandpolicieswillguidegrowthanddevelopmentinGreenfieldoverthenextthirtyyears.However,duetofundingandstaffingresources,theimplementationof theseallatonceandthe responsibility of that implementation is not feasible. Therefore, the recom-

5-12


mendationshavebeenprioritized.Theprioritiesareprovidedinatimeframeandresponsibilityisassignedtodifferentdepartments,boards,commissionsandprivateentitiesinGreenfield.Thetimeframesestablishedaremerelytoprovidesomeguid-anceinthemannerinwhichtoimplementtherecommendations.Itshouldnottaketheplaceof thePlanCommissionandCityCouncilreviewingandprioritizingtherecommendationsbaseduponresourcesandcurrentconditionsinthecommunity.Itmaybepossiblethatarecommendationmadeforthelongtermbeimplementedintheshortterm.ItwillbetheresponsibilityforthePlanCommission,CityCouncilandMayortomakethedetermination.Listedbelowarethespecificrecommenda-tions for implementation.The table lists the action, the time frame and the leaddecisionmakerstotakeresponsibilityovertheaction.

Action Implementation

ACTION IMPLEMENTATIONRESPONSIBILITY

IMPLEMENTATIONTIMING

Goal 1: High Quality of Life Action 1. Annexation Strategy City Council Short Term Action 2. Direction for Zoning of Annexed Areas City Council Short Term

Action 3. Managing Infrastructure Extensions City Council, City Engineer On-going

Action 4. Development Plan Land Use Amendments

City Council, Plan Commission On-going

Action 5. Seek Transportation Funding City Council, Town Engineer On-going

Action 6. Increase Code Enforcement City Council, Planning Staff Intermediate

Goal 2: High Quality of Development

Action 1: Develop Corridor Plans Plan Commission, Planning Staff Short Term

Action 2: Create a Zoning Overlay District for I-70

Plan Commission, Planning Staff Short Term

Action 3: Update Landscape Ordinance Plan Commission, Planning Staff Short Term

Action 4: Update Architectural Standards Plan Commission, Planning Staff Short Term

Action 5: Develop Gateway Designs Plan Commission, Planning Staff Intermediate

Action 6: Implement Design Standards in Downtown Plan

Plan Commission, Planning Staff Long Term

Action 7: Update Parking Standards Plan Commission, Planning Staff Short Term

Action 8: Add Residential Conversion Standards to Zoning Ordinance


Action 9: Update Street Design Principles in the Subdivision Control Ordinance


Action 10: Create Intergovernmental Agreement with Hancock County City Council Intermediate

Goal 3: Traditional Development Principles Action 1: Implementation of Growth Boundary City Council Long Term

Action 2: Review of Growth Boundary City Council, Planning Staff On-going

Action 3: Add Incentives to Zoning Ordinance Plan Commission, Planning Staff Short Term

Action 4: Add Adequate Facilities Provisions to Subdivision Control Ordinance


Goal 4: Industrial Economic Development

Action 1: Create a Campus Research Center City Council, Plan Commission, Planning Staff

Long Term

Action 2: Expand Commerce Park City Council, Plan Long Term

5-13




Commission, Planning Staff

Action 3: Provide Necessary Infrastructure City Council, City Engineer Long Term

Action 4: Rezone Land City Council Intermediate

Action 5: Limit Access to SR 9 Plan Commission, Planning Staff Short Term

Action 6: Minimize Land Use Conflicts Plan Commission, Planning Staff Short Term

Action 7: Create Industrial Guidelines Plan Commission, Planning Staff Short Term

Action 8: Work with Hancock Economic Development Corporation City Council Long Term

Goal 5: Local and Regional Commercial Economic Development

Action 1: Create a Regional Mall City Council, Plan Commission Long Term

Action 2: Adopt Downtown Master Plan as Part of the Comprehensive Plan


Action 3: Create a Subarea Plan for SR 9 Plan Commission, Planning Staff Intermediate

Action 4: Invest in Upgrading Public Infrastructure

City Council, City Engineer Long Term

Goal 6: Environment Action 1: Preserve Brandywine Creek and Potts Ditch as a Natural Greenway

City Council, Parks Department Intermediate

Action 2: Create a Tree Preservation Ordinance Plan Commission, Planning Staff, Parks Department

Intermediate

Action 3: Require Trail Connections to Subdivisions

Plan Commission, Planning Staff, Parks Department

Short Term

Action 4: Require Greenspace/Open Space in New Development


Goal 7: Parks, Recreation and Community Nodes

Action 1: Inventory Sidewalk Conditions Park Board, Parks Department Intermediate

Action 2: Create an Overall Pathway System Park Board, Parks Department Long Term

Action 3: Update the 5 Year Parks and Recreation Plan

Park Board, Parks Department Short Term

Action 4: Update the Sidewalks and Trail Standards in the Subdivision Control Ordinance

Plan Commission, Planning Staff, Parks Department

Short Term

Action 5: Secure Funding for Park Improvements Parks Department Long Term

Action 6: Extend Pensy Trail to the West Park Board, Parks Department Long Term

Goal 8: Transportation

5-14




Action 1: Pursue Transportation Grants City Engineer Long Term

Action 2: Limit Cul-de-Sacs Plan Commission, Planning Staff, City Engineer

Short Term

Action 3: Require Grid or Modified Grid Streets in New Subdivisions

Plan Commission, Planning Staff, City Engineer

Short Term

Action 4: Update the Thoroughfare Plan Plan Commission, Planning Staff, City Engineer

Short Term

Action 5: Update Functional Street Classifications in Subdivision Control Ordinance


Short Term

Action 6: Update Street Design Standards in Subdivision Control Ordinance


Short Term

Action 7: Require Sidewalks in all Subdivisions Plan Commission, Planning Staff, City Engineer

Short Term

Action 8: Create a Parkway City Council, City Engineer Long Term

Action 9: Design Attractive Streetscapes City Council, City Engineer Intermediate

Action 10: Incorporate Traffic Impact Studies into Subdivision Control Ordinance


Short Term

Goal 9: Historic Preservation

Action 1: Create a Historic Overlay District Plan Commission, Planning Staff Short Term

Goal 10: Neighborhoods Action 1: Create a Neighborhood Identification Map


Action 2: Complete an Assessment of Each Neighborhood

Plan Commission, Planning Staff Intermediate

Action 3: Prepare Neighborhood Plans Plan Commission, Planning Staff Long Term

Action 4: Adopt Neighborhood Design Standards Plan Commission, Planning Staff Intermediate

Action 5: Increase Housing and Property Maintenance Code Enforcement

Plan Commission, Planning Staff, Building Inspector

Intermediate

Action 6: Review of Lot Division/Combination Requirements in Zoning Ordinance


Goal 11: Housing

Action 1: Seek Additional Funding Sources Plan Commission, Planning Staff Long Term

Action 2: Create or Re-define a New Residential Plan Commission, Short Term



Zoning District Planning Staff

Action 3: Require Quality Affordable Housing Plan Commission, Planning Staff Short Term

Action 4: Update Design Standards for Residential Homes


Action 5: Establish a Housing Subcommittee Plan Commission, Planning Staff Intermediate

Action 6: Monitor Subdivision Buildout Planning Staff On-going

Short Term – actions needed to be completed in 1 – 5 years Intermediate – actions needed to be completed in 5 – 10 year time frame Long Term – actions needed to be completed in 10 to 20 year time frame On-going – actions needed to be constantly monitored and reviewed

appendix a:exisTinG CondiTions


a-1


Demographic AnalysisDemographicanalysishelps toestablishandexplainpastandcurrentpatternsof developmentandotherconditionsintheCityof Greenfieldthathaveaninfluenceonthecommunity’sfuture.Accurate,completeandcurrentinformationonexistingconditionsandpasttrendsfacilitatesasuccessfulcomprehensiveplan.

Constantlychangingandrespondingtotheenvironmentsaroundthem,communi-tiesarenotisolatedplaces.Thusthefollowingprofileof theCityof Greenfieldisconsideredinthecontextof itslocationwithinHancockCounty,theIndianapolisMetropolitanStatisticalArea(MSA),andtheStateof Indiana.

The2000Censusof PopulationandHousing is theprimarydata source for thischapter.Whereappropriate,datafromothersourcesarepresentedforcomparisonortoillustrateatrendovertime.

Population Growth and Trends

Greenfield’slocationwithintheIndianapolisMSAmakesitsensitivetothegrowthpressuresof theCityof Indianapolisandneighboringcounties.Asthepopulationof Indianapolishasmovedfartherawayfromthecitycenter,ithasextendedintothesurroundingcounties,creatingrapidgrowthpressure inwhatwereformerlysmallandruralcommunities.Thispatternof suburbanizationbeganfortheIndianapolismetropolitanregion,andinlargecitiesalloverthenation,followingWorldWarIIwhenhomemortgage loansbecameeasier toobtain. Thefirstcommunities thatbegantoseegrowthintheIndianapolisregionwereCarmelandGreenwood,twoestablishedcitiesthatbecamewellconnectedtoIndianapolisintheearly1970swiththeconstructionof theinterstatehighwaysystem.

ForthepastseveraldecadesGreenfieldhasexperiencedthisoutwardgrowthfromIndianapolis, especially during the 1970s when the population increased over 13percentfrom1970to1980.Itwasnotuntilthe1990swhenGreenfieldexperiencedamoresignificantincreaseinpopulation.AccordingtotheUSCensusthepopula-tionof Greenfieldin1990was11,657andby2000thepopulationhadincreasedto14,545,andincreaseof nearly25percent.Asaresponsetothisdramaticincreaseinpopulation,theCityof GreenfieldhascreatedthisComprehensivePlan.

1960 1970 1980 1990 2000

Greenfield 9,049 9,986 11,288 11,657 14,545

%Change 46.92%10.35%13.04%3.27% 24.77%

HancockCounty 26,665 35,096 43,939 45,527 55,391

%Change 31.15%31.62%25.20%3.61% 21.67%

Indiana4,662,498 5,195,392 5,490,210 5,544,1596,080,485

%Change 18.51%11.43%5.67% 0.98% 9.67%

a-2


WhileGreenfield’sgrowthlaggedbehindHancockCounty’sgrowthfrom1970to1990,Greenfieldgrewmorethanthecountyduringthe1990s.ThegrowthatthecountylevelhasbeenconsistentwithothercountieswithintheIndianapolisareainrecentyears.

2000 2003 %Change

Greenfieldcity 14,545 15,721 8.09%

HancockCounty 55,391 59,446 7.32%

Boone 46,107 49,370 7.08%

Hamilton 182,740216,82618.65%

Hendricks 104,093118,85014.18%

Johnson115,209123,2566.98%

Madison 133,358131,121-1.68%

Marion 860,454863,2510.33%

Morgan66,689 68,656 2.95%

Shelby 66,689 68,656 2.95%

Indiana6,080,485 6,195,643 1.89%

Between1990and2000HancockCountygrewatarateof over21percentcom-pared toGreenfield’s rateof nearly25percent. From2000 to2003, the rateof growthinGreenfieldhasincreasedby8percentwhiletheCountyonlyincreasedbyover7percentaccordingto2003Censusestimates.

ThisgrowthratecomparisonindicatesthatwhiletheCountycontinuestofaceheavygrowthpressurefromIndianapolis,themostrapidgrowthhasmovedtothecountycenterof Greenfield. Thisphenomenonwill likely come to an end as the avail-abilityof developablelandwithinGreenfielddiminishes,withdevelopmentactivitymovingout to thenext“tier”of suburbancommunities. It is important tonotethat,whilegrowthinGreenfieldhasincreasedatahigherrate,HancockCountyasawholeisprojectedtogrowataratenearlycommensuratewithBooneandJohnsonCountythrough2025,increasingfrom55,391in2000to73,778in2025(a33.2per-centincrease)butremainingbehindothercountiessuchasHamiltonandHendricksaccording to projections developed by the Indiana Business Research Bureau atIndianaUniversity(IBRC).

Whiletherateof growthalonecreatesimplicationsforplanning,thecompositionof that population says a great dealmore. Looking at the composition of thatgrowthinvolveslookingattheage,educationlevels,andhouseholdtypesof thosemovingtotheareainordertounderstandthedemandsthatthegrowingpopulationwillplaceonthecity.

a-3


Age DistributionFigure xx, Population Distribution, presents an age distribution for the City of Greenfieldin2000.Almostone-thirdof Greenfield’spopulationfallsbetweentheagesof 25and44yearsold.Thisistheagegroupwhichisstatisticallylikelytoworkandhaveschool-agechildren, so it isnotmerelycoincidence that thenumberof youngchildren(undertheageof 18)isproportionatetothenumberof peopleinthe25to44agegroup.Thereisalowerpopulationinthe20to24agegroup,whichisnotuncommonforacitywithoutacollegeoruniversity.

Thepopulation distribution forGreenfield in 2000 is consistentwith thesefind-ings. Distributionsformostcommunitieswillbeslightlydistortedtoaccountfordifferencesingenerationsizes.Forexample,thebabyboomgenerationwillcauseaslightdistortionbecauseitissignificantlylargerthanthegenerationsbeforeandafterit.However,Greenfield’spopulationpyramiddisplaysverylittlegenerationaldistortion.Ratherthanhavingahigherproportionof personsatthebaseof thepyramid(childrenandyoungadults),thepyramidisproportionalinthatthe25-44yearoldagegroupisonlyslightlylargerthanthatof children.

Thedistributionof age inGreenfieldhasmanyplanning implications:aneedforfamilyopportunities,amenitiesandactivities;aneedforopportunitiesforchildren;and,opportunitiesforteensandyoungadultsasthosechildrenageovertheplan-ningperiod.Greenfieldalsohasaneedforolderadulthousing,basedontheper-centageof individualsovertheageof 62,Andthebabyboomerswhowillretireandageovertheplanningperiod.

2000AGE Greenfield HancockCounty IndianapolisRegionIndiana

MedianAge 35.3 37.4 34.6 32.8

%62yearsandover 16.78%13.53%12.94%14.62%

RaceBothGreenfieldandHancockCountyarelessraciallydiversethantherestof theIndianapolis regionandState. As themigrationof populationfromIndianapoliscontinues,thecommunitymayfindthemselveswithamorediversepopulation.

2000RACE Greenfield HancockCounty IndianapolisRegionIndiana

%WhitePopulation 98.51%98.38%81.98%87.45%

%Hispanic(of anyrace)1.22% 0.55% 2.55% 3.46%

EducationAnother important component of the population is the education level of thecommunity’sresidents.Thiscorrelatestothetypeof laborpoolavailableforbothcurrent and future employers. As Figure x.x, Educational Attainment indicates,Greenfieldhasthehighestpercentageof highschoolgraduateswithnearly40per-centof thepopulationof allcomparableareas.Greenfieldhasalowerpercentage

a-4


of adultswhohavecompletedacollegedegreethanthereferenceareas.

Astheresult,ahigherpercentageof thelaborforceinGreenfieldissuitedforjobsthatdonot requireacollegeeducation. However, in the regionalcontextof theMSA and themobility of workers, it is necessary to further investigate the localeconomyandemploymentmixtounderstandthepotentialplanningimplicationsof thisphenomenon.Greenfieldmustevaluatewhichjobsitwilltrytoattractwithinitscorporatelimitsandwhichjobswillbesuppliedtoresidentsbyothercommunitieswithinthemetropolitanarea.ThisissuewillbeexploredfurtherintheEconomicCharacteristicssectiontofollow.

2000EducationalAttainment

Indiana HancockCounty Greenfield IndianapolisMSA

%HighSchoolGraduateorHigher 82.13%87.77%83.83%83.97%

%Bachelor’sDegreeorHigher 19.41%22.19%18.91%25.83%

HouseholdsOneof themostsignificantissuesfacingarapidlygrowingpopulationisthetypeof housingnecessarytoaccommodatethatgrowth;oneof thetopicsthatrequirescarefulconsiderationisthecompositionof householdsandthehousingtypesthatthosehouseholdsrequire.Householdgrowthtypicallyisconsistentwithpopulationgrowth(ahouseholdincludesallthepeoplewhooccupyahousingunit,regardlessof relationship).Householdsformthebasisforhousingdemand,thesinglelarg-estlanduseinvirtuallyeverycommunity.In2000therewere5,933householdsinGreenfield, reflecting a 41.2percent increase from the totalof 4,202householdsin1990.TheincreasewaslargerthanHancockCounty,CenterTownshipandtheIndianapolisMSA.

Numberof Households1990 2000 PercentChange

Indiana2,064,246 2,336,306 13.2%

HancockCounty 15,901 20,718 30.3%

CenterTownship 5,845 7,873 34.7%

Greenfieldcity 4,202 5,933 41.2%

IndianapolisMSA 480,406629,65531.1%

Household TypesFigurex.x,HouseholdsbyType,2000indicatesthepercentageof non-familyhouse-holdsinGreenfieldandintheregion.Non-familyhouseholdsincludesinglepersonhouseholds,suchasyoungsingles,widowedadults,orpeoplewithroomates.Thepercentageof householdswithpersonsover65ishigherinGreenfieldthanintheMSA,thecountyandthestateasawhole.Itappearsthatthesignificantnumberof childlesshouseholdsinGreenfieldiskeepingthecity’saveragehouseholdsizelower

a-5


thanregionalaverages.

HouseholdsbyType,2000

IndianaHancockCounty IndianapolisMSA CenterTownship Greenfield

%FamilyHouseholds 82.5% 89.5% 82.2% 85.4% 82.1%

%Non-FamilyHouseholds 14.6% 9.7% 15.6% 13.0% 15.7%

%Householdswithpersonsunder18 12.9% 13.9% 13.4% 13.6% 13.4%

%Householdswithpersonsover65 11.6% 10.7% 10.2% 11.7% 13.1%

USCensusBureau

Historically,Greenfield has also had a larger percentage of female householders,withnohusbandpresent. In1990,thepercentageof singlefemalehouseholderswas19percentcomparedwith6.5percentin2000.Thisindicatesthatthenumberof femalehouseholdersdeclinedinportiontothenumberof totalhouseholds.ThismeansGreenfieldmayhaveagreaterneedforsupportiveservices,includingchildcareandevenhousingsupport.

2000Households IndianaHancockCounty CenterTownshipGreenfieldcity IndianapolisMSA

PersonsperHousehold 2.53 2.65 2.51 2.4 2.5

Percentof totalHH:MarriedCoupleFamily(Spouse) 20.97%25.91%24.39%22.25%20.30%

Percentof TotalHH:FemaleHouseholder,noHusbandPresent 6.50% 4.57%6.14% 7.59% 6.93%

Household sizeHouseholdsizeisthenumberof personslivinginahousingunit.Itgivesanindica-tionof howmanyhousingunitswillbeneededinthefutureaswellasdeterminingthefuturepopulation.Thesetrendswilldeterminetheimpactthepopulationwillhaveon the future landusesandwillbe instrumental indeterminingappropriateland-usemixes.

Householdsizecanbeimpactedbymanydifferentfactors.Becausepeopleareliv-inglonger,therearemoreelderlyhouseholds.Alongthesamelines,manyfamiliesarenothavingasmanychildren,andhouseholdsizesaresmaller.Withtheshiftingof marriagepatterns,therearemoreyoungadultswhoaresingleorwhoprefertolivealoneorwitharoommate.Allof thesesocialchangesimpacthouseholdsize.

Compared to the national trend (1.5 percent decline in the number of personsperhousehold)HancockCountyhasexperiencedadramaticdeclineinthesizeof

a-6


theaveragehousehold,from2.82personsperhouseholdin1990toa2.65personaveragehouseholdsizein2000.Incontrasttoboththenationalandcountytrend,boththeCityof GreenfieldandCenterTownshiphavedecreasinghouseholdsizes.Center Township’s household average decreased 8.4 percent down from 2.74 in1990to2.51in2000.Incomparison,Greenfield’saveragehouseholdsizedecreased8.7percentfrom2.64in1990to2.41in2000.

AverageHouseholdSize*

1990 2000 PercentChange

Greenfield 2.64 2.41 -8.71%

CenterTownship 2.74 2.51 -8.39%

HancockCounty 2.82 2.65 -6.03%

Indiana2.61 2.53 -3.07%

*in1990thisfigurewasreferredtoas“personsperhousehold”

USCensusBureau

Population SummaryIn summary, Greenfield has experienced continuous population increases sincethepreviousComprehensivePlan.Projectionswillbecreatedtoevaluatehowthisgrowthwillcontinue.Despiteof thecontinuouslyincreasingpopulationGreenfieldhasexperiencedrelativelyfewchangesinitssocialcharacteristics.Of thechangesthathaveoccurred themostprominent includes apopulationgrowth rate that isnow larger than thatof thecounty and increasednumberof households to cor-respondtotheincreaseinpopulation.

Allof thesefactorswillhavean impacton thefutureof thecommunityandareimportant considerations as policies regarding economic development, housing,educationandcommunityservicesaredeveloped.

Housing CharacteristicsInadditiontofoodandclothing,housingrepresentsoneof thethreebasicneedsforhumansurvival.Housingprovidesmorethanjustashelter;italsoprovidesaplaceof comfortandpromotesanoverallsenseof wellbeing. Of all thebasicneeds,housing costs represent the largest single expense for most households. Homeownershipisconsidereddesirablebymanypeople.If homeownershipdeclinesinacommunity,thisgenerallysignalsdeclineinwealthandtheoverallwell-beingof thecommunity.

Housing UnitsBased on the 1990 Census data, there were 4,425 housing units in the City of Greenfield. By2000,thenumberof unitshad increasedto6,458,a45.9percent

a-7


increase. This rapidgrowth isconsistentwith theexpansiongreaterIndianapolishasseeninthepastfewdecades.Thisgrowthfarsurpassesthestate,thecountyandevenIndianapolis,indicatingamigrationof homeownersintoGreenfield.

HousingUnits

1990 2000 PercentChange

Indiana2246046 2,532,319 12.75%

HancockCounty

16495 21,750 31.86%

Centertownship

6128 8,457 38.01%

Greenfieldcity,Indiana 4425 6,458 45.94%

Indianapolis,INMSA 517893 681,14431.52%

U.S.Bureauof theCensus

Housing ValueMedianhousingvalueisanimportantcomponentof housingstock,becauseitindi-cateswhocanandcannotaffordhousing inacommunity. “Median”means thatthereareanequalnumberof propertiesvaluedhigherandlowerthanthemediannumber.Themedianhousingvalueof owner-occupiedunitsinGreenfieldishigherthanthatof theStatebutlowerthanthecountyandIndianapolisMSA,asshowninFigureX.X,ComparativeMedianHousingValues.ThemedianhousingvalueintheGreenfieldplanningareawas$106,300in2000,muchhigherthanthestatemedianof $94,300.Thisisnotsurprisingconsideringtherapidgrowthintheregionandthecorrespondingdemandforland.TheoverallmedianvalueforCenterTownship($115,200)washigherthanforpropertieswithinthecorporatelimitsof Greenfield,likelyduetonewerhousingandlowerdensityresidentialpatternsintheunincorpo-ratedareasof theTownship.SimilartoCenterTownship,themedianhousingvalueforHancockCountywasalsohigher($129,700),whichlikelyreflectsnewerhousingstockincommunitiesclosertoIndianapolis,likeMcCordsville.

Despitehavingalowermedian,Greenfieldhasseenthegreatestpercentageincreasesince1990.In1990,themedianhousingvalueinGreenfieldwas$57,000comparedto$106,300 in2000. Whenthe2000medianhousingvalue isconvertedto1990money, to account for inflation andother price increases, themedian value of ahomeincreasesby39.2%.ThisincreaseislargerthanincreasesbytheState,Countyand IndianapolisMSA. This large increase is due to the large supply of newerhomesbuiltinduringtheendof thedecade,allof whichhavehighervalues.

a-8


Year Structure BuiltAfactorthatfurtherinfluenceshousingcharacterandpriceistheageof thehous-ing.Theageof acommunity’shousingstockdoesnotalwaysindicatesubstandardcondition; in fact,manyof theolderstructureswere typicallybuilt frombrickorconcrete,characteristics thatmakeolderhousingunitsacommunityasset. Olderhousing areas provide the potential for the creation of historic districts, whichenable certainprograms tobe leveraged to assisthomeowners in renovation andmaintenance.Insomecases,theneedtorepairolderplumbingandheatingsystemscanmakeolderhousingoptionsprohibitivelyexpensiveor toomuchof abotherforcertainsegmentsof thepopulation.Therefore,olderhomesarenotattractivehousingoptionsforeveryone.Eventhoughmanyolderhomesarewellmaintained,theystilloftensustainsomedepreciation.

Inreviewingtheageof thehousingstock,18percentof Greenfield’shousingstockwasbuiltbefore1940.Generally,whenthehouseisoverfiftyyearsof age,thereareconcernsthattheconditionof thestructureandthefacilitiessuchasplumbingorelectricitymightrequiresignificantinvestment.

Approximately30percentof thehousingunits intheCityof Greenfieldarenewconstruction,orbuiltafter1990.Withanadditional9percentbuiltinthelast10to20years.Basedonthesefiguresroughly39percentof Greenfield’shousingstockhasbeenbuilt in the last 20 years confirming that thehousing stock is relativelynew.

Home Occupancy and OwnershipOwnerOccupied RenterOccupied

TotalUnits Vacant %Vacant TotalUnits Vacant %Vacant

4058 125 3.08% 2303 303 13.16%

U.S.CensusBureau

Housingtenurereferstowhetherahomeisoccupiedbyownersorrenters.Thereare6,458housingunitsinGreenfield,of them5,933areoccupiedwhiletheremain-ing525areconsideredvacant.TheCensusdefinesavacanthousingunitasahous-ingunitinwhichnooneislivinginatthetimeof enumeration,unlessitsoccupantsareonlytemporarilyabsent.TheDepartmentof HousingandUrbanDevelopmenthasdevelopedaguidelineforplanningpurposes.Onaverage,acommunityshouldmaintainapproximately25to30percentof itshousingstockasrentalunits.

Of the5,933occupiedunits,approximately70percentof themareowneroccupied,whiletheother30percentarerenteroccupied.Typicallymuchof acommunity’srentalhousingstockismulti-familyunitsratherthansinglefamilyhousing.

In order to understand the demand of housing, occupancy rates are reviewed.In general, when a community has lower vacancy rates, coupled with anticipatedgrowth,itindicatesahousingdemand.TheUSDepartmentof HousingandUrbanDevelopment (HUD) sets the overallminimumvacancy rate at three (3) percenttoensurethatadequatehousingchoicesarebeingofferedinacommunity.Bythesamestandard,theownervacancyrateshouldbeatleast1.5percent,andtherentalvacancyrateshouldbeatleast5percent.

a-9


ThevacancyratesforGreenfieldreflecttheCensusBureau’scountsforhomesforsaleandforrentatthetimeof theCensusin2000,asshowninFigureX.XOwnerandRenterOccupiedVacancyRates.

Excludingseasonalhousing,theownervacancyrateis3.08percent,higherthantherecommendedminimum.Therentalvacancyrateis13.16percent,whichismuchhigherthanahealthyfivepercentvacancyrate.Theseaveragevacancyratessuggestmoderateturnoverinthehousingstock.

Structure TypeThe structure type refers to the physical description of the housing stock. Thestructure type is predominately used to distinguish the different types of hous-ingavailable inacommunity,whether it isasingle-dwellingunitoramulti-familydwellingunit.Figurexx,UnitsinStructure,depictsthehousingtypesavailableinGreenfield.

Single-familydetachedhomescomprise thecoreof thehousingstock in thecity.BasedonCensus2000figures,approximately73percentof theGreenfield’shousingstockwas single familyunits,whilenearly13percentweremulti-familyunitsandapproximately3percentweremobilehomes.

Thefigurealsodisplaysthechangeinunitssince2000basedonapprovedhousingpermits.Whiletheoverallpercentageformulti-familyhomesdeclinedfrom2000to2005,thebiggestchangeisinthesinglefamilysectorwithanincreaseof 1,320units.Infiveyears,therewasanincreaseof 4percent.Atthetimeof thiscomprehensiveplan,therewereadditionaldevelopmentswaitingforapprovalthatcontainedmoresinglefamilyhomes,whichwilladdtothepercentageandfurtherleanthebalancetowardsinglefamilyhomes.Fromapolicystandpoint,inordertomaintainabal-anceof housing,theapprovalof multiplefamilyhousingshouldbemonitoredcare-fullyandmatchedwiththecontinuedincreaseinsinglefamilyunits.

UnitsinStructure Cityof Greenfield Percentof Total2000Percentof Total2005

1990 2000 2005+Approved

1unit,detachedandattached 3265 4701 6021 73% 77%

2units 409 438 449 7% 6%

3to4units 250 377 377 6% 5%

5ormoreunits 360 749 796 12% 10%

Mobilehome,TrailerorOther 141 193 193 3% 2%

a-10


Economic CharacteristicsLabor ForceThelaborforceisanestimateof employedandunemployedpeoplebyplaceof resi-dence.Indianadataprovidesestimatesof theCivilianLaborForce,whichexcludespeople in institutions and in the Armed Forces. These numbers are importantbecausetheyareusedbypotentialemployerstodetermineif thereareenoughavail-ableworkersfortheiroperation.

TheHancockCounty labor forcewas 31,960 people in 2003. Of those, 30,720wereemployedand1,240(3.9percent)wereunemployed.MorerecentdataisalsoavailablefromtheIndianaBusinessResearchCenterwhoreportinMarchof 2005thatHancockCountyhadanunemploymentrateof 5percent,oneof thelowestratesintheIndianapolismetropolitanarea.TheonlycountiestoalowerratewereHendricksandHamiltonCountywhotraditionallyhavealowerrate.

ThemostrecentunemploymentrateisconsistentwithHancockCounty’srateoverthepastseveraldecades.Ingeneral,theunemploymentrateforHancockCountyhasbeenbelowboththeannualrateforthestateandtheregion.ThemostrecentannualrateforGreenfield(3.9percent)remainsbelowtheState(5.1percent)andregion(4.7percent).Similarly,GreenfieldexperienceditspeakunemploymentratesatthesametimeasthestateandregionsignifyingthatGreenfieldisaffectedbythesameeconomicfactorsasothercommunitiesandareas. Greenfield’speakunem-ploymentrateoccurredin1991and1992witharateof 4.3percentanditslowestratein1998and1999witharateof 2.0percent.

The Economic Base – Location QuotientGreenfield’s economic growthdepends on the expansionof its exports to otherregions,sothatincomeproducedbythatexpansiongeneratesincreaseddemandforproductsandservicesproducedandconsumedlocally. Probablythemostwidelyusedapproachtoestimatingtheinfluenceof alocaleconomyisthelocationquo-tient. The assumption underlying the use of location quotients is thatHancockCounty’seconomyisamicrocosmof thenationaleconomy.

Thelocationquotientcomparesthepercentageof anarea’stotalworkforceworkinginasectorwiththenationalpercentageforthesamearea. Thelocationquotientidentifies the sectorsprovidingbasic andnon-basic employment. Basic activitiesbringmoneyintotheareaeconomy. Alocationquotientgreaterthanone[1.00]indicatesabasicactivity.Alocationquotientof lessthanone[1.00]indicatesanon-basicactivity.Non-basicactivitiesaresourcesof cashleakagefromtheeconomy.If anon-basicsituationcanbecorrected,thelocaleconomybenefits.

LocationQuotientsByIndustry,2002

March2002 IndustryCode HancockCounty StateOf Indiana

Forestry,fishing,hunting,andagriculturesupport11 0.00 0.46

a-11


Mining 21 0.15 0.55

Utilities22 1.31 1.06

Construction 23 1.73 0.97

Manufacturing 31 1.40 1.71

Wholesaletrade42 0.95 0.86

Retailtrade 44 1.13 1.04

Transportation&warehousing 48 0.74 1.08

Information 51 0.51 0.58

Finance&insurance 52 0.37 0.74

Realestate&rental&leasing 53 0.63 0.79

Professional,scientific&technicalservices 54 0.54 0.59

Managementof companies&enterprises55 0.41 0.70

Admin,support,wastemgt,remediationservices 56 0.59 0.73

Educationalservices 61 0.03 0.83

Healthcareandsocialassistance 62 0.97 1.00

Arts,entertainment&recreation 71 0.73 0.98

Accommodation&foodservices72 1.12 0.99

Otherservices(exceptpublicadministration) 81 1.45 1.09

Auxiliaries(exccorporate,subsidiary&regionalmgt) 95 5.60 0.87

Unclassifiedestablishments 99 2.19 0.59

HancockCountyhas eightbasic economicactivities thatproducegoodsand ser-vices beyond local demands, exporting them to external markets and generatingincomeinthelocalareaoutside:

Utilities(1.31)

Construction(1.73)

Manufacturing(1.40)

RetailTrade(1.13)

AccommodationandFoodServices(1.12)

Otherservices(exceptpublicadministration)(1.45)

a-12


Auxiliaries(executivecorporate,subsidiary&regionalmgt)(5.6)

Unclassifiedestablishments(2.19)

ThereareseveralsectorswhereHancockCountyisunderrepresented,meaningthattheyrelyonotherlocaleconomiestomeettheirneeds.BecauseHancockCountyis part of the IndianapolisMSA, it is not surprising thatmarket sectors such ashealthcareandsocialassistance;financeandinsurance;andrealestate,rental,andleasing are underrepresented locally. One would expect that the region’s center(Indianapolis)iscurrentlyfulfillingmanyof thosedemands.

IndustryCodeDescription #of Employeesforweekof 3/12/02 AnnualPayroll-2002 Total#of Establishments

Total 14880 492694 1316

Forestry,fishing,hunting,andagriculturesupport0

Mining 9.5 0 2

Utilities112 5354 4

Construction 1441 45428 274

Manufacturing 2670 108871 71

Wholesaletrade740 35457 65

Retailtrade 2226 42690 163

Transportation&warehousing 350 10191 56

Information 237 7393 19

Finance&insurance 317 9716 69

Realestate&rental&leasing 167 2834 43

Professional,scientific&technicalservices 507 14322 112

Managementof companies&enterprises158 10277 6

Admin,support,wastemgt,remediationservices 650 23632 69

Educationalservices 9.5 0 5

Healthcareandsocialassistance 1905 52884 103

Arts,entertainment&recreation 174.5 0 13

Accommodation&foodservices1490 13453 80

Otherservices(exceptpublicadministration) 1043 21880 157

a-13


Auxiliaries(exccorporate,subsidiary&regionalmgt) 749.5 0 3

Unclassifiedestablishments 9.5 0 2

Income and Buying PowerAsexpectedfromtheeducationdata,GreenfieldhasalowerpercapitaincomethantheCountyorregion. TheCityof Greenfieldhasahigherpovertyratethanthesurroundingarea.Manycitieshaveahigherrateof povertythanthesurroundingcountyandtownshipsduetogreaterconcentrationsof thepoorincitiesandaccesstosocialservices.

Greenfield’spovertyrateof familiesisslightlyhigherthanthecounty’sat3percentand1.9percent,respectfully.However,asthechartindicates,thepercentof familiesbelowthepoverty line inGreenfield iswellbelowthestateandregionalpercent-ages.

IncomeIndianaHancockCounty CenterTownship GreenfieldIndianapolis,MSA

PerCapitaIncome(1999)

$20,397$24,966$23,529$22,509$23,198

Percentof FamilieswithIncomeBelowPovertyLine 6.7% 1.9% 2.3%3.0% 6.3%

Percentof AllPersonswithIncomesBelowPovertyLevel9.5% 3.0% 3.4%4.3% 8.6%

Median Household IncomeMedian household income is an important economic indicator used to evaluatecommunities.Itisamedian,soextremepovertyandextremewealtharebalanced.Greenfieldhasoneof thelowestmedianhouseholdincomescomparedtoanyof the comparison areas. Only the state ($ 41,567) has a lowermedian householdincomethanGreenfield($42,035).

Buying Power IndexInadditiontoincome(themoneyinput),itisusefultoexaminespending(themoneyoutput).Marketingprofessionalstrackthisinformationbycounty.Accordingtothe2000guideof theAnnualSurveyof BuyingPower,publishedbySales&MarketingMagazine,HancockCountycanexpectincreasedwealthandretailgrowth.

Thebuyingpowerindex(BPI)isameasurementof amarket’sabilitytopurchasegoodsandservices.Itcombinesthreebasicelements:population(thedemographicfactor),EffectiveBuyingIncome(theeconomicfactor),andretailsales(thedistribu-tionfactor).Thesumof theseweightedpercentsistheBPI.TheBPI,whichisthearea’sabilitytobuy,isexpressedasapercentageof thenationaltotal(100%).TheIndianapolisMetroArea (which includesHancockCounty),hadaBPIof 0.6335

a-14


for 1999, and is projected to have aBPI of 0.6526 by the year 2004. HancockCountyhadaBPIof 0.0203for1999,andisprojectedtohaveaBPIof 0.0222bytheyear2004.Bothareasexperiencedincreasesfromthepreviousreportsin1996butHancockCounty’sBPIincreasedatafasterrate.HancockCountyincreasedby.0031orover16percentcomparedtotheIndianapolisMetroAreawhichexperi-enceda.011pointsora1.7percentincrease.

Perhapsof moreinterestshouldbetheindividualmeasuresthatmakeuptheBPI.Calculationswerebasedona2000populationestimateof 56,200peopleinHancockCounty,anda2005projectionof 62,000people(aprojected10.3percentincreaseinpopulationanda12.3percentincreaseinhouseholds).Regardingincome,overhalf (51.2percent)of theCounty’shouseholdsearned$50,000ormorein2000,com-paredwith40.3percentfortheIndianapolisRegion,and34.6percentforthestate.

HancockCounty’saveragehouseholdEffectiveBuyingIndex (EBI) for1999was$57,397,andisprojectedtobe$71,995by2000.EffectiveBuyingIncome(EBI)isdefinedasmoneyincomelesspersonaltaxandnon-taxpayments–anumberoftenreferredtoas“disposable”or“after-tax”income.TotalEBIisexpectedtoincreaseby25.4percentbetween1999and2004 for theCounty,which is above the state(21.6percent)andtheregion(30percent).Totalretailsalesareexpectedtoincreaseby37.8percentduringthesametimeperiod,again,abovethestate(25.6percent)andtheregion(24.7percent).RetailsalesperhouseholdinHancockCountyshouldclimb from $23,106 per household in 1999, to $27,130 per household in 2004.However, it should be noted that the county’s sales per householdwill continuetolagbelowthestate’sandtheIndianapolisarea’saverages,withHancockCountyexceedingonlyJohnsonandMorganCountiesintheregion.ThismeansthattheCounty’shouseholdsareinthepositiontospendmore,buthavetraditionallychosennotto.Itisunclearwhetherthisisbecausecountyresidentsaremoreconservativewiththeirspending,orif thelocalmarketopportunitiesareincomplete.

Regardinglocalmarketexpenditures,1995figuresshowedthatof thetotalretailsalesof $471,370,000inHancockCounty,$45,663,000wasforfood,$37,235,000wasforeatinganddrinkingplaces,$49,255,000wasforgeneralmerchandise,$9,942,000wasspentonfurniture,furnishings,andappliances,and$170,760,000wasspentonauto-motive.Thepercentageof spendingineachcategoryforHancockCountyisbelowthestateandregionallevelswiththeexceptionof spendingonmotorvehiclesandpartdealers,whereHancockCountyresidentsspendnearly15percentmore.

Thisinformationtellsusthatincreasedwealthandretailgrowthhasandisexpectedtocontinue.Localresidentswilllikelyhaveincreasingdisposableincometospend,butwilltheyspendit,andif theydodecidetospend,willitbeinGreenfield?Thecity’schanceatcapturingmostof thatnewspendingishigherif thereareadequatesitesfornewcommercialuses.Bothundevelopedcommerciallandandspecialcom-mercialareas,suchasthehistoricdowntown,couldbemarketedforthatexpectedgrowthinretailandservicebusinesses.

Employment by IndustryEmploymentbyindustryisusefulinunderstandingthetypesof employmentoppor-tunitiesthatexistinthecommunityandtheskillsthatworkersinthecommunityarelikelytohavebasedonthoseindustries.

Accordingtothe2000Census,inGreenfield,educational,healthandsocialserviceswasthelargestemploymentsectorin2000,followedbymanufacturing,retailtrade,andconstruction.Manufacturingaccountedfor19percentof employment,retailtradecovered12percent;constructionwas9percent.

a-15


The following analyseswill look at job growthwithin theCounty aswell as theproportionof peopleworkingwithinHancockCountyasopposedtocommutingtootheremploymentcenters.AstheIndianapolisregionhasgrown,morethanjustpeoplehavespreadintoneighboringcommunities.Thosecommunitiesarebegin-ningtoseeagrowthinjobsaswell.Thelatestofficialgovernmentfiguresforindus-tries are for2003, and they showgrowth in all sectorsof industry inHancockCounty,FigureX.XHancockCountyEmployeesbyMajorIndustry. Throughoutthe1990s,HancockCountysawdramaticincreasesinthenumberof jobsintheser-viceindustryandretailindustry.ThemostprevalentjobtypesinHancockCounty’sretailindustryarerelatedtogeneralmerchandisestores,grocerystores,automobiledealerships,gasstations,restaurants,miscellaneousretailandshoppinggoods;andthemostprevalentjobtypesinHendricksCounty’sserviceindustryarerelatedtohealth services, business services, personnel services, and membership/religiousorganizations.

HancockCountyEmployeesbyMajorIndustry-NAICS

2001 2002 2003

Totalemployment 30754 31695 32902

Forestry,fishing,relatedactivities(D) (D) (D)

Mining 32 (D) (D)

Utilities(D) (D) 46

Construction 3219 3211 3204

Manufacturing 2739 2775 2805

Wholesaletrade1104 1088 1078

Retailtrade 3687 3948 4031

Transportationandwarehousing (D) (D) 1034

Information 386 385 384

Financeandinsurance 1150 1187 1243

Realestateandrentalandleasing1912 1963 2029

Professionalandtechnicalservices 2583 2596 2629

Managementof companiesandenterprises 165 215 319

Administrativeandwasteservices 1797 1900 2061

Educationalservices 284 306 370

Healthcareandsocialassistance 1938 1972 2050

Arts,entertainment,andrecreation 674 669 692

Accommodationandfoodservices 1495 1601 1825

a-16


Otherservices,exceptpublicadministration 2306 2455 2566

Governmentandgovernmententerprises3448 3630 3773

Source:USBureauof EconomicAnalysis

Note:D-Notshowntoavoiddisclosureof confidentialinformation,buttheesti-matesforthisitemareincludedinthetotals.

Startingin2000theUSBureauof EconomicAnalysisstartedanewindustryclassi-ficationsystem,whicheliminatedtheverybroadserviceclassificationandreplaceditwithseveralmoredetailedcategories.Sincethechangeinclassification,theserviceandretailindustryhascontinuedtoincreaseinsuchcategoriesasaccommodationandfoodservices,andhealthcareandsocialassistancewithretailtradebeingthesinglelargestemployerin2003.OtherlargeindustriesinHancockCountyincludegovernment(3,773),construction(3,204),andmanufacturing(2,805).

Similar recent information isnotavailable forGreenfield,but thecitycanexpectsimilar trendswith thenumberof manufacturing, retail, andservice jobs increas-ing,especiallygiventhatthelargestmanufacturingemployersinthecommunityareIndianaPrecisionTechnologyandIrvingMaterialsInc.andthepresenceof manymanufacturingfirmsinthecommunity’sindustrialparks.ThesameistrueforretailandserviceindustrieswithlargeemployersincludingHancockMemorialHospitalandEliLily.

CommutingCommutingpatternsforworkersareimportantbecausetheydemonstratewhethertherearemoreworkersthanjobsinthecounty,andviceversa.Theyalsodemon-stratehowfarpeoplearewillingtodriveforwork,andthecountiestowhichthecommunityislikelylosingdollarsbecausepeopletendtoshopwheretheywork.

In2000,thetopcountiessendingworkersintoHancockCountywereMarionandHenry,eachsendingover1,200personsaday.Hamilton,MadisonandShelbycoun-tiesregularlysendinover500adayasillustratedbelow.

HancockCountyalsosentworkerstoothercountiesin2000.Infact,morepeopleleftHancockCountytoworkthancameintothecountytowork.Morethan14,200more people leftHancockCounty towork inMarionCounty each day than leftHancockCountytoworkinMarionCounty. IncludingthosetravelingtoMarionCounty,atotalof 18,139peopleleftHancockCountyeachdayforwork,anumberthatfarsurpassesthe4,488peopleenteringHancockCountydaily.

Population ProjectionsPopulationprojections forman integralpartof theComprehensivePlanbecausefuture needs are largely based on the expected population to be served. TheComprehensive Plan provides population projections for the years 2000 through2030.

Projectionsindicatethenumberof personsenteringthecommunity(birth+migra-tion–death)andhowmanynewhouseholdsthecommunitycanexpect.Thiswill

a-17


inturnaidinthedeterminationof theamountof residentiallandneededandthepotentialfuturedemandoncityservices.

Fourpopulationprojectionsweredeveloped.ThefirstwasdevelopedbytheIndianaBusinessResearchCenter(IBRC)usingacohort-survivalmethod.Thisprojectionhasthepopulationreaching20,600intheyear2025.

Amoreaggressivemodelisbasedonlinearregression.Thismodelestimatesthe2025populationof Greenfieldtobe22,900.Anotheraggressivemodelistousethehistoricpopulationtrendforthecityandbasetheprojectionontheaveragegrowth.Thismodelestimatesthe2025populationtobe26,000.

Amodel thatusesbuildingpermits and theaveragehousehold size todeterminefuturepopulationshowsthemostaggressivepopulationgrowth,bringingthe2025populationto31,600.

Thepeopleinvolvedinthecomprehensiveplanningprocesschosethe_________modeltousetodeterminefuturelanduseneeds.

appendix B:Greenfield downTownplan


B-1


B-2

Appendix B: Greenfield Downtown Plan

appendix C:GreenfieldThorouGhfareplan


C-1


C-2

Appendix C: Greenfield Thoroughfare Plan

appendix d:Greenfield parks plan


d-1


d-2

Appendix D: Greenfield Parks Plan

appendix e:GreenfieldannexaTionsTraTeGy


e-1


e-2

Appendix E: Greenfield Annexation Strategy

Documents

Greenfield Comprehensive plan · One draft plan was created and refinedwith a strong consideration for community and ... These conclusions are intuitive – having a population spread