Indianapolis Smart Growth Redevelopment District
Revitalization Strategy:
Prioritizing Actions to Support a Transit-Oriented Future
January 2011
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Prepared Under:
Contract No. EP-W-07-023
Prepared for:
U.S. Environmental Protection Agency
Office of Solid Waste and Emergency Response
Office of Brownfields and Land Revitalization
Washington, DC 20460
Prepared by:
www. sra. com/environment
www.vitanuova.net
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Contents
1. INTRODUCTION 1
1.1 Partnership for Sustainable Communities Brownfield Pilots 1
1.1.1 Partnership Livability Principles 1
1.2 Indianapolis Partnership for Sustainable Communities Brownfield Pilot 1
1.2.1 Study Area: Smart Growth Redevelopment District (SGRD) 1
1.2.2 Project Team and Advisory Committee 3
1.2.3 Pilot Scope 3
1.2.4 Information Sources Reviewed 4
1.2.5 Constituencies and Interviews Conducted 5
1.2.6 Relationship of SGRD Revitalization Strategy to Previous Studies 6
2. INITIAL FINDINGS AND ANALYSIS OF THE SGRD 8
2.1 Physical Characteristics of the SGRD 8
2.1.1 Development History of Indianapolis and SGRD 8
2.1.2 Understanding the SGRD in 2010 9
2.2 Revitalization Investments and Activities in the SGRD 16
2.2.1 Housing and Land Use-related Investments 16
2.2.2 Brownfield-related Investments 18
2.2.3 Transportation- and Infrastructure-related Investments 19
2.2.4 Community-based and Nonprofit Activities 22
2.2.5 Private Sector Activities 24
2.2.6 Potential Economic Development "Local Synergies" 25
2.3 Analysis of Initial Findings 25
2.3.1 The SGRD Historic Block Pattern 25
2.3.2 The SGRD Block Pattern in 2010 26
3. SGRD REVITALIZATION STRATEGY: STRATEGICALLY BUILD WALKABLE
NEIGHBORHOODS TO SUPPORT A TRANSIT-ORIENTED FUTURE 28
3.1 SGRD Revitalization Strategy: Background 28
3.2 SGRD Revitalization Strategy: Prioritized Actions 30
Action 1: Identify locations for walkable neighborhood development sites
adjacent to transit routes 30
Action 2: Develop design criteria for higher-density development within walkable
neighborhoods 31
Action 3: Promote infill development on selected blocks to create walkable neighborhoods. 32
Action 4: Increase usage of Monon Trail within the SGRD 33
Action 5: Develop communications and outreach strategy 34
APPENDICES I
APPENDIX A: LOCAL SYNERGIES: ASSETS FOR ECONOMIC DEVELOPMENT A-l
APPENDIX B: POTENTIAL FUNDING SOURCES TO SUPPORT SGRD REVITALIZATION
STRATEGY IMPLEMENTATION B-l
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Partnership for Sustainable Communities EPA Brownfield Pilot CS Indianapolis, IN January 2011
1. Introduction
1.1 Partnership for Sustainable Communities Brownfield Pilots
The U.S. Environmental Protection Agency (EPA), Department of Housing and Urban Development (HUD), and
Department of Transportation (DOT) are working together under the Partnership for Sustainable Communities to
ensure that federal investments, policies and actions support development that is more efficient and sustainable.
This partnership is based on "livability principles" that guide inter-agency collaboration and support the integration
of: safe, reliable and economical transportation; affordable, energy-efficient housing; and sustainable reuse of idle
or underutilized land. Pilot communities were selected by EPA's Brownfields Program with input from HUD and
DOT. Pilots receive technical assistance and support from EPA, HUD and DOT. The three agencies are working
with the pilot communities to build on past investments, as well as identify opportunities to link housing, transit,
brownfields, and coordinate sustainability resources.
/. /. / Partnership Livability Principles
The Partnership for Sustainable Communities has established a set of livability principles to guide the agencies'
efforts and other infrastructure investments to protect the environment, promote equitable development, and help
address the challenges of climate change. The Livability Principles are:
• Provide more transportation choices. Develop safe, reliable and economical transportation choices to
decrease household transportation costs, reduce our nation's dependence on foreign oil, improve air
quality, reduce greenhouse gas emissions, and promote public health.
• Promote equitable, affordable housing. Expand location- and energy-efficient housing choices for
people of all ages, incomes, races, and ethnicities to increase mobility and lower the combined cost of
housing and transportation.
• Enhance economic competitiveness. Improve economic competitiveness through reliable and timely
access to employment centers, educational opportunities, services, and other basic needs by workers, as
well as expanded business access to markets.
• Support existing communities. Target federal funding toward existing communities—through strategies
like transit oriented, mixed-use development and land recycling—to increase community revitalization
and the efficiency of public works investments and safeguard rural landscapes.
• Coordinate and leverage federal policies and investment. Align federal policies and funding to remove
barriers to collaboration, leverage funding, and increase the accountability and effectiveness of all levels
of government to plan for future growth, including making smart energy choices such as locally generated
renewable energy.
• Value communities and neighborhoods. Enhance the unique characteristics of all communities by
investing in healthy, safe and walkable neighborhoods—rural, urban or suburban.
1.2 Indianapolis Partnership for Sustainable Communities Brownfield Pilot
1.2.1 Study Area: Smart Growth Redevelopment District (SGRD)
Recognizing the development needs of the area northeast of downtown Indianapolis, a concept plan for the Smart
Growth Redevelopment District (SGRD) was originally developed in 2008. The SGRD concept plan identified an
area centered at East 22nd Street and the Monon Greenway Trail, just northeast of the downtown business district.
The concept plan determined that the influence of the SGRD should extend beyond commonly accepted
walkability ranges of % mile, but not extend so far as to dilute its potential for transformation. Accordingly, the
SGRD boundaries were loosely defined to range from the man-made boundary of 1-70 to the south to Fall Creek at
the north, Central Avenue to the west, and Keystone Drive to the east.
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Partnership for Sustainable Communities EPA Brownfield Pilot o*5 Indianapolis, IN
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The SGRD concept plan does not specify fixed boundaries to ensure that the area remains connected to adjacent
neighborhoods and development initiatives, and to provide flexibility to link to local planning efforts. To simplify
the representation of the SGRD concept and its boundary, a % mile radius was drawn from the intersection of East
22nd Street and the Monon Greenway Trail (see Figure 1).
Figure 1: The Study Area - SGRD
The SGRD is the area within the circle.
Data source: Google Maps, November 2010.
In October 2008 the Indianapolis Green Commission recommended that Mayor Ballard implement the SGRD
Concept Plan. Subsequently, the Indianapolis Office of Sustainability recognized and supported the SGRD. In the
following year, the American Institute of Architects awarded Indianapolis a 2009 Sustainable Assistance Design
Team (SDAT) grant to study the SGRD and to conduct community outreach efforts between October 30, 2009,
and November 1,2009.
EPA Region 5 Land Revitalization staff became aware of the SGRD through their interaction with Indianapolis
Department of Metropolitan Development (DMD) Brownfield staff on projects located in the area. EPA
Headquarters staff attended the initial public engagement meeting conducted as part of the SDAT process. In
January 2009 EPA, DOT, and HUD staff toured the SGRD, and later discussed the efforts in an interagency
meeting in Kansas City. In February 2010, the SGRD was designated as a Partnership for Sustainable
Communities Brownfield Pilot.
Within this report, we refer to the study area as the "SGRD" and depict it as a % mile circle centered at East 22nd
Street and the Monon Greenway Trail.
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1.2.2 Project Team and Advisory Committee
The Indianapolis Partnership for Sustainable Communities Brownfield Pilot is led by the EPA Office of
Brownfields and Land Revitalization (OBLR). Technical assistance is being provided under contract by SRA
International, Inc., and VitaNuova, LLC (Technical Assistance Team).
An Advisory Committee was convened by the City of Indianapolis Office of Sustainability to guide the technical
assistance work provided by this Pilot. The Advisory Committee meets approximately every six weeks to provide
guidance to the Technical Assistance Team. Advisory Committee members include:
• Chair: Karen Haley, City of Indianapolis Office of Sustainability
• Maury Plambeck, City of Indianapolis DMD
• Michael Huber, City of Indianapolis Deputy Mayor for Economic Development
• Chris Harrell, City of Indianapolis Brownfields Coordinator
• Chelsea Ernsberger, Community Development Block Grant (CDBG) Grant Coordinator
• Don Colvin, City of Indianapolis Parks
• Josephine Rogers, MB CDC
• Janine Betsey, KPADC
• Michele Oertel, Indiana Finance Authority (IFA)
• Lori Miser, Indianapolis Metropolitan Planning Organization (MPO) (Anna Tyszkiewicz acting)
• Larry Heil, DOT, Federal Highway Administration (FHWA)
• Reggie Arkell, DOT, Federal Transit Administration (FTA)
• John Hall, HUD
• Jim Van der Kloot, EPA
• Stephanie Cwik, EPA
1.23 Pilot Scope
Building on the multiple planning efforts that have taken place in and around the SGRD in recent years and to
ensure efforts are not duplicated, this technical assistance Pilot is focused on developing a practical revitalization
strategy that will: 1) prioritize actions to strategically build walkable neighborhoods to support a transit-oriented
future; 2) connect the SGRD with other ongoing redevelopment and planning efforts in and around the SGRD; 3)
identify how existing and future resources can be directed toward the SGRD; and 4) identify opportunities for
investments in underutilized properties and underserved corridors that will help catalyze revitalization of the
SGRD.
To develop this revitalization strategy, the Technical Assistance Team reviewed existing studies and developed
geographic information system (GIS) and computer-aided drafting and design (CADD) mapping to identify
potential area-wide revitalization drivers. The initial findings regarding potential area-wide revitalization drivers
were presented to the Advisory Committee in summer 2010. The Advisory Committee provided feedback to the
Technical Assistance Team on the initial findings, and requested that the Revitalization Strategy focus on
prioritizing actions to support a transit-oriented future.
This revitalization strategy was presented to the Advisory Committee in fall 2010. The Advisory Committee
provided input on which actions are a priority for the Technical Assistance Team to help local stakeholders
implement. The implementation phase of the Technical Assistance Team's support will be completed by February
2011, and may include site-specific conceptual reuse planning, identifying walkable neighborhood locations that
could support higher density and/or mixed uses required, developing approaches for adding density in selected
locations, developing sustainable criteria for transit stops, economic development planning, or stakeholder
engagement and outreach.
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1.2.4 Information Sources Reviewed
Numerous studies have been conducted in the City of Indianapolis and in the SGRD over the past decade. Several
community planning efforts are already underway in the SGRD, including the American Institute of Architects
(AIA) 2009 Sustainable Design Assessment Team (SDAT) project and the work associated with the EPA
Community Action for Revitalized Environment (CARE) grant to the Martindale-Brightwood Environmental
Justice Collaborative. Several other projects that are being funded by EPA, HUD and/or DOT exist in the SGRD.
These studies help frame the discussion for redevelopment around brownfields within the SGRD. Review and
analysis of these studies was an important first step in this reuse planning process. The following list highlights
many of the reports and studies that were reviewed:
Indianapolis Smart Growth Redevelopment District Plan DRAFT Version 1.5
AIA SDAT Green Design Report (see more information in following subsection)
Sustainable Future for the 22nd/Monon Redevelopment Area (SDAT Implementation Timeline)
Citizens/King Park Neighborhood Plan
Martindale-Brightwood Neighborhood Plan, 2003
Martindale-Brightwood Comprehensive Plan, 2009-2011
City of Indianapolis Sustainability Report
Indianapolis Abandoned Properties Action Plan
Central Indiana Transportation and Land Use Plan
The Update of the Indianapolis Regional Transportation Plan for 2025
Indianapolis Regional Center Plan 2020
Midtown Indianapolis 2010: Guiding Principals and Future Development
Northeast Corridor Alternatives Analysis/Environmental Impact Statement Scoping Document
City of Indianapolis Alabama Street Pilot Project Marion County, Indiana
City of Indianapolis Ohio Street Pilot Project Marion County, Indiana
16th Street Corridor Sustainable Community Connection Project
16th Street Corridor Enhancement Work Program
• 16th Street Corridor 1956 Sanborn Brownfield Sites
• 16th Street Master Plan
• 16th Street Corridor Plan
• City of Indianapolis Green Infrastructure Master Plan Best Management Practices - Summary
• Green Infrastructure Feasibility and Prioritization Study
• Indianapolis Regional Center and Metropolitan Planning Area Multi-Modal Corridor and Public Space
Design Guidelines, 2008
• City of Indianapolis Cultural Trail TIGER Grant Application
• Indianapolis BikeWays Plans: 2-5 Year Plan, 5-10 Year Plan, 10 Year Plan
• Brownfield Redevelopment of the Monon Trail Neighborhoods
• Monon Trail usage data, 2009-2010
• Monon Farm Conceptual Plan
• Soil Composting Project at Monon Site - Summary
• Edible Cities: Urban Farming in Indianapolis
• EPA CARE workshop summaries
• National Design District Development Framework Indianapolis, Indiana, April, 2008
• National Design District Redevelopment Area Plan and Comprehensive Neighborhood Reinforcement
Strategy, 2008
• National Apartments Profile, 2009
• Neighborhood Business Districts: Retail Viability Report, 2010
• National Design Factory fact sheet
• Indianapolis Smart Growth Renewal District website
• Phase I Environmental Site Assessment Bulge Property 1100 East 25th Street Indianapolis, Indiana
Keramida Phase II Investigation, Bulge Property, 25th St and Monon Trail, Indianapolis
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•s
Phase I Environmental Site Assessment Vacant Property 1150 East 28th Street Indianapolis, Indiana
IndianaMap.org GIS basemap data such as infrastructure (e.g., roads, rail), hydrology (e.g., rivers, lakes),
and Indiana Department of Environmental Management (IDEM) environmental information
City of Indianapolis/Symbiont GIS data about the area such as the parcel and assessor information, aerial
photographs, vacant property information, and zoning
Background information from Indianapolis MPO and DMD
Brownfield and other GIS data compiled in GIS from DMD, Symbiont
FOCUS Resource Guide: Indianapolis Market Study Overviews
Lawrence Village at the Fort Preliminary Plan, Covenants and Development Standards
Outputs from the Contaminated Properties Workshop
Real Estate in Martindale neighborhood: http://www.ibj.com/blog?blogld=3
Real estate: Indianapolis Business Journal: http://www.indyharmoni.org/index.html
Multiple Indianapolis Star articles
1.2.5 Constituencies and Interviews Conducted
The many ongoing planning processes result in numerous public and private constituencies with interests in the
future development of the SGRD. Those that were interviewed and/or researched for the development of this
Revitalization Strategy are listed in Figure 2.
Figure 2: Constituencies and Interviews Conducted
Organization
Federal
Interviewed Researched
FTA
FHWA
EPA: Region 5, Office of Underground Storage Tanks
State
Indiana Department of Environmental Management
Indiana Finance Authority
Indiana Foreclosure Prevention Network
Regional
Indianapolis MPO (MPO)
Central Indiana Regional Transportation Authority (CIRTA)
Indianapolis Public Transportation Corporation (IndyGO)
Indy Connect (MPO, CIRTA, and IndyGO)
City/County Indianapolis Office of Sustainability / Sustain Indy
Indianapolis Department of Metropolitan Development
Indy Parks and Recreation
Indianapolis Abandoned Property Program
Indy Land Bank
Lead Safe and Healthy Homes Department-Marion County Health
Department
Neighborhoods King Park Area CDC
Martindale-Brightwood CDC
Devington CDC
SDAT Implementation Committee
Nonprofits Local Initiatives Support Corporation (LISC)
Delta Institute
Seeds of Hope Community Garden
Indianapolis Food, Farm and Family Coalition
Growing Place Indy
Oasis of Hope CDC (affiliated with the Oasis of Hope Baptist Church)
Hoosier Environmental Council
People for Urban Progress
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Organization
Developers/
Brokers
Interviewed Researched
Development Concepts Inc. (DCI)
A2SO4
Wilbur Montgomery
John Watson
Cassidy Turley
Farren Real Estate Services
Academia Butler University Center for Urban Ecology
Ivy Tech Community College
Purdue/ Indiana University Medical Campus
1.2.6 Relationship of the SGRD Revitalization Strategy to Previous Studies
This strategy, which focuses on building walkable neighborhoods within the SGRD to support a transit-oriented
future fully supports and incorporates the livability principles stated by the Interagency Partnership for Sustainable
Communities. It builds on the programs currently underway within the SGRD and defines a pathway to
incorporate sustainability into the decision making process. It is not intended to supersede existing plans or
studies; instead, this strategy is designed to complement them by prioritizing actions to strategically build
walkable neighborhoods to support a transit-oriented future.
The first phase of this Pilot project involved a review of an extensive number of existing studies, plans and
programs recently completed or in progress within and around the SGRD. Among the many planning initiatives
listed in Section 1.2.4, the AIA SDAT Green Design Report1 developed in 2009 is notable for its comprehensive
analysis of the same geographic area as is being targeted through this Partnership for Sustainable Communities
Brownfield Pilot—the SGRD. The SDAT program focuses on the importance of developing sustainable
communities through design, and provides technical assistance to communities. Working with local stakeholders,
the SDAT team identified general goals and objectives for the neighborhood. The two over-arching strategies
identified by the SDAT team include2:
• Building the capacity to take control of the collective future
• Connecting issues and actions in pursuit of a common vision for the future
Supporting these goals, the SDAT team generated dozens of recommendations for the SGRD and the SDAT
Implementation Committee, and plans to implement many of these recommendations in the coming years. Some of
these recommendations include3:
• Begin the public dialogue about light rail options now.
• Place multifamily buildings and commercial properties in clusters where light rail stop(s) might be
located.
• Design and develop more quality infill development.
• Work with community residents to designate an area of the neighborhood to serve as a walkable center,
with moderate-density multifamily residences and an appropriate mix of neighborhood-serving retail
establishments (ideally this would be located at a light rail stop).
This Revitalization Strategy has been developed to complement, not duplicate the work of the SDAT study. It
supports the two overarching SDAT strategies, and it prioritizes and provides greater specificity to some of the
recommendations identified in the SDAT report, with a focus on strategically building walkable neighborhoods
www.aia.org/aiaucmp/groups/aia/documents/pdf/aiab082781.pdf
Ibid, p. 17 of 122.
Ibid, pp. 48, 58, 70, and 88 of 122.
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Partnership for Sustainable Communities HPA Brownfield Pilot C8 Indianapolis, IN January 2011
within the SGRD and identifying innovative economic development approaches within the SGRD. This strategy is
also designed to support the neighborhood preferences and goals identified in the neighborhood planning
documents, as listed below.
Related Citizens King Park Neighborhood Plan Neighborhood Preferences4
"The neighborhood feels strongly that there should be more residential development in the neighborhood."
"The neighborhood feels that the land use pattern created for Fall Creek Place is acceptable for most of the
neighborhood."
"The neighborhood would like to see new single-family homes on vacant lots."
"They expressed a feeling that home ownership strengthens the neighborhood."
Public Works and Transportation Recommendation: Explore the potential of a public transit demonstration
project on the Monon that promotes the concept of a multi-modal transportation corridor and acts as a
catalyst for development.
Related MB CDC Neighborhood Plan Goals5
• Improve the overall quality of housing in the neighborhood's residential areas.
• Improve infrastructure in the neighborhood to reinforce the neighborhood as a good place to live and do
business.
• Provide a strong [business development] base for the neighborhood.
Related MB CDC Comprehensive Plan Goals6
Improve business conditions
Improve housing conditions
Improve neighborhood infrastructure
Improve the environmental quality of the community
4 Citizens King Park Neighborhood Plan (2001), www.indy.gov/eGov/City/DMD/Planning/Docs/LandUse/Neighborhood/citizenskingparknp01.pdf, pp. 34,
35, 35, 36, and 24.
5 Martindale Brightwood Neighborhood Plan (2003),
www.indy.gov/eGov/City/DMD/Planning/Docs/LandUse/Neighborhood/Martindale_Brightwood_Neighborhood_Plan_03.pdf, pp. 11, 18, and 23.
Martindale Brightwood Comprehensive Plan (2010), not available online, pp. 21, 34, 36, and 38.
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C8 Indianapolis, IN January 201
2. Initial Findings and Analysis of the SGRD
To understand the city's structure today, it is helpful to review its history. The Technical Assistance Team
conducted a review of the physical characteristics of the SGRD (Section 2.1), including a review of the city's
history and expansion, and mapped key features to establish a historical perspective of Indianapolis and the
SGRD. In addition, the Technical Assistance Team reviewed recent revitalization efforts and investments in the
SGRD (Section 2.2), to understand where momentum, opportunity and market drivers exist for revitalization. The
initial findings from this research are presented in this section, followed by an analysis of the initial findings
(Section 2.3) which directly supports the Revitalization Strategy.
2.1 Physical Characteristics of the SGRD
2.1.1 Developm en t History of Indianapolis and SGRD
Indianapolis, located on the White River, was selected as the location of the state capital and the first settlement
was laid out in 1820 from a plan by Alexander Ralston. The city lies on the original east-west National Road. The
original city plan, a mile square grid with four diagonal boulevards that connect at the center of the plan, forms the
Central Business District (CBD). The area grew slowly until rail service—the Madison & Indianapolis—began
operation in 1847 and Union Station became the central stop for common rail passenger service. The Indiana
Central Canal was built to bypass the non-navigable waters of the White River. However, this infrastructure
improvement project bankrupted the state in 1839. Originally planned as a 296-mile canal, connecting the Erie
Canal and the Ohio River, the Central Canal turned into a 24-mile stretch of locks and channels. Of those 24 miles
of canals, only a little over eight miles was ever operational and connected Broad Ripple Village to the
downtown.7
From 1847 to 1861, the city experienced a period of economic prosperity. The city grew from 8,000 to 170,000
inhabitants in a 50-year period beginning in 1847.8 City streetcar lines were laid out beginning in 1863, with tracks
on Illinois and Washington Streets. The lines extended to the Fair Grounds in 18659 and by 1898 included over
100 miles of track. This streetcar system connected the Mapleton-Fall Creek Village, bounded by 38th Street to the
north and Fall Creek to the south. In 1905, the College Avenue Bridge was opened to provide access from
downtown Fall Creek and carry interurban and trolley lines into the new northern suburbs along College Avenue.
The Martindale-Brightwood area was originally two villages whose population was made up largely of workers
associated with the railroads. Brightwood, the eastern section of the neighborhood, was first platted in 1872 and
amended in 1874. The town of Brightwood was incorporated in 1876 and remained autonomous until 1897 when it
was annexed by Indianapolis. Martindale was settled in 1874, also by railroad workers who found employment in
machine shops and manufacturing. The loss of the railroads proved to be detrimental to the economic status of
Martindale-Brightwood in the post-war years.
Natural gas reserves, discovered in 1886, also fueled the industrial growth of the city. By 1912 most of the natural
resources being used to fuel the city's factories had dried up, and by 1920 they were all but gone. At the turn of the
century, Indianapolis had become a large automobile manufacturer, rivaling Detroit. With roads leading out of the
city in all directions, Indianapolis became a major hub of regional transport, earning the nickname "The
Crossroads of America." The same network of roads that bred Indianapolis' role as a transportation hub would
allow quick and easy access to suburban areas. Started in 1959 and completed in 1970,1-465 and 1-74 roughly
7 http://indianapolis-indiana.funcityfmder.com/2008/09/13/indianapolis-history
8 Ibid
9
Indianapolis: A historical and statistical sketch of the railroad city, a chronicle of its social, municipal, commercial and manufacturing progress, with full
statistical tables, p. 127. W.R. Holloway, William Robeson, 1836-1911.
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bound the existing area of the city. The original mile grid defines a larger pattern of major and minor arterials
throughout the metro area. In general, the suburban commercial centers or malls are typically located off the
interstate, close to the main arterials.
With the loss of the railroad industry and the expansion of the Indianapolis suburbs, the central city neighborhoods
went through a period of transition. White residents began to relocate to the newly-built suburbs. The migration
away from Brightwood left behind a surplus of housing which was followed by an in-migration of lower-income
African Americans. This continued throughout the next four decades. By 1960, African Americans accounted for
approximately half of Brightwood's population of 5,700. This amount would increase to over 90 percent of the
population, which had declined to 4,700 by 1990. Neighborhoods in the King Park Area saw similar changes in the
1960s, where the racial composition changed from 98 percent to 54 percent white, and white attendance at the
Shortridge School dropped to less than 25 percent. As the total neighborhood population declined, many properties
were abandoned and some of the housing stock began to deteriorate.
A large segment of the commercial growth in the city has occurred outside the central business district, with large
multiple commercial centers on the interstate ring.
2.1.2 Understanding the SGRD in 2010
Neighborhood Structure
Neighborhoods in the SGRD are designated both by the names associated with the historic villages (Mapleton-Fall
Creek) and also by local political designations (Martindale-Brightwood). There are strong neighborhood identities,
but no identifiable physical center within the SGRD. There are true physical boundaries that separate districts and
neighborhoods into smaller areas, some of which are named, others of which are only somewhat visible in the
economic data for these areas. The major neighborhood dividers are the interstate to the south and Fall Creek to
the north. Within this area, major north-south streets like Meridian, College and the Monon Trail, and to a lesser
degree Central, mark shifts in the fabric. The Monon Trail which runs north-south through the SGRD, serves as
the east-west boundary between the KPADC and MB CDC. The major east-west streets, 16th and 30th, and to a
lesser degree 25th, are through streets and have greater traffic volumes than other secondary streets.
The primary parks—Martin Luther King, J.T.V. Hill, and Douglas—act as local attractions, but also subdivide the
major urban grid and form sub-districts. Of those sub-districts, the recently redeveloped areas of Fall Creek Place,
running from Meridian west to Central, north to 30th and south to 22nd, are strong neighborhoods with lower
vacancy and more owner-occupied properties. Oak Hill, an area between 30th and 25th, bounded by Douglas Park
to the west and north and Keystone to the east, is also strong, with many owner-occupied properties. Other areas
have some level of coherency, but the busier streets tend to act as boundaries to the spread of development. The
weakest areas are found near the Monon Trail. The majority of the older industrial properties are located along the
Monon Trail and include a number of brownfields. In general, the more vibrant areas are on the edges of the
SGRD, as shown in the darker shades of blue in Figure 3.
Vacant, Brownfield and City-Owned Property
Population within the SGRD has declined since the 1960s, including in each of the past two decades. U.S. Census
data show a population decrease of 8 percent between 1990 and 2000 for Center Township. Center Township is
bounded to the north by 38th Street, to the south by Troy Avenue, and south of the downtown area. Center
Township includes the SGRD, as well as downtown Indianapolis.10
According to the U.S. Census Bureau 2006-2008 American Community Survey11 and the SAVI Community
Profile12, the population has continued to decrease since the 2000 Census. Data indicate that the population of
http://factfinder.census.gov/ June 3, 2010.
http://factfmder.census.gov/ ACS_2008_3YR_GOO/, June 2, 2010.
Center Township Community Profile, Marion County, Indiana, http://www.savi.org, June 3, 2010.
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Center Township may have decreased by another 8 percent in the past decade. In addition, data suggest that the
number of families with children decreased by 44 percent between 1990 and 2008. The reduction in population is a
contributing factor to the substantial number of vacant properties within the SGRD, shown in Figure 4.
Approximately 1,335 of 4,098 SGRD properties (33 percent) are vacant. In comparison, Marion County has a
vacancy rate closer to 9 percent.13 Areas near the Monon Trail where former industrial and auto-based commercial
uses are concentrated tend to contain the greatest levels of vacancy. Vacancies are also clustered around College
Avenue, between 25th and 22nd Streets. The Old North Side historic district, south of 16th, Oak Hill, and Fall Creek
Place have the lowest vacancy rates.
Figure 3: Neighborhood Structure and Vibrancy
Light blue areas indicate neighborhoods with higher vacancy rates. Darker blue areas
have lower vacancy rates suggesting greater stabilization and stronger neighborhood
fabric. Green areas represent parks and greenspace. The SGRD is the area within the
circle.
Data source: City of Indianapolis GIS database June 2010 and visual inspection June 22, 2010.
13 www.indygov.org/eGov/City/DMD/Abandoned/Documents/PDF/Final%20aband%20prop%20action%20plan%20020309%20(2).pdf
10
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Figure 4: Vacant Parcels
Vacant parcels are depicted in pink. The SGRD is the area within the circle.
Data source: City of Indianapolis GIS database, June 2010.
11
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.c Communities HPA Brownfield Pilot OS Indianapolis, IN January 2011
In addition to the high vacancy seen within the SGRD, approximately 195 of 4,098 total properties in the SGRD
are brownfields. This represents nearly 5 percent of the neighborhood properties. Figure 5 depicts the
concentration of brownfields within the SGRD, the majority of which are concentrated along the Monon Trail.
Approximately 15 of the brownfield sites within the SGRD have been identified as petroleum sites by the city and
IDEM, as shown in Figure 5. In addition, approximately 65 additional properties have been noted by the City of
Indianapolis as potential petroleum properties. The suspected and/or known petroleum brownfield sites account for
more than 40 percent of the brownfields within the SGRD. In order to revitalize the SGRD and improve the
quality of environmental conditions for local residents, brownfields cleanup and redevelopment will need to be a
fundamental component of any revitalization strategy.
Approximately 144 of 4,098 properties in the SGRD are owned by the city, as shown in Figure 6. These properties
include school and civic uses, an industrial park, properties near the Monon Trail, vacant parcels, and a significant
number of brownfields. City-owned property represents 3.5 percent of the neighborhood, providing an opportunity
for the city to catalyze redevelopment. The number of city-owned brownfields, in particular, presents an
opportunity to focus city resources and public incentives on redeveloping brownfields within the SGRD.
Resident Preferences for Land Uses
There is a relatively high percentage of home ownership in the SGRD and community residents want to maintain
high home ownership levels and the single family feel of the neighborhoods. Residents want to see their
community's vibrancy restored but are concerned about gentrification, displacement of existing residents, and high
density development. Job creation remains a primary concern among SGRD stakeholders. Also, the SGRD has
few neighborhood-serving retail establishments (e.g., drug stores, grocery stores). A car is required to travel to
needed services, reducing access for lower-income households.
Transportation and Infrastructure
College Avenue remains a major commuter route and is one of the more highly trafficked streets in the SGRD.
IndyGO manages 29 fixed routes and more than 4,000 bus stops throughout Indianapolis. College Avenue is the
main north/south bus route within the SGRD with buses stopping approximately every 30 minutes at 30th Street. It
operates from 5:00 am to 10:30 pm on weekdays, 6:00 am to 10:30 pm on Saturdays, and 7:00 am to 9:30 pm on
Sundays and holidays. The main east/west bus routes near the SGRD are along 10th Street and 38th Street with
buses stopping approximately every 30 minutes. Additional bus routes run through the SGRD, as shown in Figure
7, but have headways up to 60 minutes.
There is no commuter rail service in Indianapolis. The city does have inter-city rail access via Amtrak, but the
train does not stop in the SGRD.
The SGRD is home to a 1.5 mile portion of the Monon Trail, a 17-mile trail that attracts tens of thousands of
visitors each month, particularly north of 38th Street. The Monon Trail is depicted in Figures 5 and 6 as the dotted
line running north-south through the SGRD. Usage of the Monon Trail is much lower in the SGRD, because many
users turn off the Monon Trail at 38th Street to link to the Fall Creek Trail. Additionally, the high number of
properties with industrial and brownfield uses along the Trail in the SGRD acts as a psychological barrier to using
the Trail more heavily. The Monon Trail divides neighborhoods, and in many ways the SGRD itself. However, the
south end of the Trail in the SGRD connects with the Cultural Trail in downtown Indianapolis. The two popular
uses north and south of the SGRD suggest that it may be possible to increase Trail usage within the SGRD.
The condition of the street infrastructure within the SGRD is mixed. There are many sections of road lacking
adequate stormwater management, sidewalks and bike access.
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Partnership for Sustainable Communities EPA Brownfield Pilot o*5 Indianapolis, IN
January 2011
Figure 5: Known Brownfield Properties
Known brownfield properties are depicted in yellow. Known petroleum brownfields are depicted in
tan. The SGRD is the area within the circle.
Data sources: Brownfield data from City of Indianapolis GIS database, June 2010. Petroleum brownfield data
compiled from information provided by the City of Indianapolis and IDEM, August 2010.
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Partnership for Sustainable Communities EPA Brownfield Pilot o*5 Indianapolis, IN
January 2011
Figure 6: City-owned Parcels
City-owned properties are depicted in light pink. The SGRD is the area within the circle.
Data source: City of Indianapolis GIS database, June 2010.
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Partnership for Sustainable Communities EPA Brownfield Pilot o*5 Indianapolis, IN
January 2011
Figure 7: Existing Bus Service
W8S/ "'Wj
. 52ncl
Crossroads
Existing bus service in Indianapolis. The SGRD is shown in the inset box, and is roughly depicted as the area within the
circle. Bus routes 2, 5, 17, and 19 travel through the SGRD, with 30-60 minute headways.
Data source: IndyGo, www.indygo.net/PDF/maps/IndyGo_System_Map_English.pdf.
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Partnership for Sustainable Communities EPA Brownfield Pilot o*5 Indianapolis, IN
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2.2 Revitalization Investments and Activities in the SGRD
In addition to the physical characteristics of the SGRD, the Technical Assistance Team reviewed a number of
ongoing revitalization efforts and investments in the SGRD being made by the government and private sector. This
review was conducted to gain an understanding of how federal, state and local stakeholders are supporting the
revitalization of the SGRD.
This section does not identify all of the investments being made in the SGRD; instead it highlights some of the
notable contributions federal, state and local stakeholders are making to combat the SGRD's vacant and
contaminated property issues.
2.2.1 Housing and Land Use-related In vestm en ts
HUD Programs/Funding
HUD funds are locally administered by DMD and represent one of the largest financial resources available to the
city in its housing and neighborhood revitalization efforts. HUD funding leveraged from the Indiana Housing and
Community Development Authority (IHCDA) is being used to help the Indianapolis Housing Authority redevelop
an existing affordable housing project at 16th and North Park Street into higher density affordable housing. The 16
Park project will expand the development from 65 low-income apartments, to 155 new affordable townhouse units
(30 dwelling units (d.u.) per acre). Although the IHCDA does not typically provide HUD funding to KPADC, it
did give KPADC emergency CDBG funding for home maintenance projects in 2010. KPADC has also used state
Neighborhood Stabilization Program (NSP) funding to develop "doubles" on single family lots (e.g., 7 units on 3
parcels). KPADC is receiving $80,000 from HUD HOME to construct two homeownership units in the SGRD.
NSP funds are used to strategically acquire abandoned and/or foreclosed properties within targeted areas, and
demolish blighted structures. The current Indianapolis NSP plan includes 11 areas that qualify for NSP funds. In
2010, four areas were selected as target areas for NSP funds, shown in shades of brown in Figure 8. What is
referred to as the north target area, roughly bounded by 21st Street, 42nd Street, Dr. Andrew J. Brown Avenue, and
Capital Avenue, overlaps significantly with the SGRD, as shown in Figure 8.14
Figure 8: NSP Target Areas and the SGRD
/38thSt W38thSt
30th St
The four 2010 NSP target areas are shown
in shades of orange/tan.
The "north" target area overlaps with a
significant portion of the SGRD.
Data source:
www. indy.gov/eGov/City/DMD/Community/
Documents/PDF/Indy%20NSP%20Plan/nsp_ta
rget_areas_map.pdf
www.indy.gov/eGov/City/DMD/Community/Documents/PDF/Indy%20NSP%20Plan/nsp_general_target_areas.pdf
16
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Partnership for Sustainable Communities HPA Brownfield Pilot C8 Indianapolis, IN January 201 '.
The four 2010 NSP target areas will receive $29 million, which must be spent by 2013, and will be used for
buying, rehabbing and demolishing hundreds of vacant houses.15 Approximately 530 housing units will be
developed, but at the time of this study, it is not clear where those projects will be located within the target area.
According to WTHR in Indianapolis, "The city has acquired nearly 570 vacant, foreclosed or abandoned
properties, 47 of which will be developed as greenspace or urban farms. Two vacant commercial buildings will be
redeveloped for businesses to serve area residents. A total of 313 vacant unsafe structures are being demolished to
reduce blight and improve safety and quality of life in these neighborhoods."16 These figures refer to the number
of city-wide properties being targeted, only some of which may be in the SGRD.
Mapleton Fall Creek received $2,966,300 of HUD/NSP funds for development in their NSP target area. They also
have $80,000 of HUD/CDBG funding to provide owner-occupied repairs in their NSP target area.
Another example of significant HUD funding that has been directed to an area near the western boundary of the
SGRD is the Fall Creek Place project. This project relied on $4 million from a HUD Homeownership Zone
demonstration grant, $4.2 million of HUD HOME funds, and $8.5 million of CDBG funding, to demolish vacant
and blighted houses, build 269 new homes and rehabilitate 44 homes, improve streets and infrastructure, and
develop a system of parks and greenspace. This project shows the impact that layered funding sources and
strategically targeted redevelopment projects can make.
In October 2010, HUD announced that Indianapolis DMD will receive an approximately $1.2 million Sustainable
Communities Challenge Grant to implement sustainable elements at the city planning level.17 The grant
application proposed to update Marion County development regulations featuring prototype zoning codes in three
areas in the city, one of which is planned to be in the SGRD. In the SGRD, the grant will consider prototype
zoning related to brownfields redevelopment two blocks to the east and west of the Monon Trail, from 16th to 25th
Streets.
Indiana Foreclosure Prevention Network/Indiana Housing and Community Development Authority
The Indiana Housing and Community Development Authority has funding available for Marion County for
foreclosure prevention. MB CDC has secured some of this funding for the Martindale-Brightwood neighborhoods.
Indianapolis DMD
The Indianapolis DMD is currently going through a process with the neighborhood organizations and the CDCs to
review and/or revise the neighborhood plans for portions of the Martindale-Brightwood and King Park
neighborhoods that are in the SGRD. The DMD would like to increase density and reduce the amount of vacant
property in the SGRD. The DMD reduces the number of abandoned and vacant houses in the Indianapolis
metropolitan area through its Abandoned Housing Initiative. The initiative created the Abandoned Properties
Strategy and prioritization developed through a Redevelopment Planning Council.
In 2010, 600 abandoned homes were projected to be demolished. In May 2010, Indianapolis Mayor Greg Ballard
announced a potential plan to demolish 2,000-4,500 abandoned homes using proceeds from the sale of the city's
water and sewer utilities to Citizens Energy Group.18 This effort would target properties that are unsafe or could
not be readily renovated, and avoid abandoned homes with rehabilitation potential. Due to the high vacancy and
abandonment rates in the SGRD there is potential for major demolition activity.
DMD is working with community stakeholders and other city offices, including the Metropolitan Development
Commission, to declare the SGRD a Redevelopment District and to determine the best means of funding the
projects identified in the redevelopment plan. Tax increment financing (TIP) and or a housing tax increment
15 http://www.wthr.com/story/13197607/indianapolis-housing-to-get-29m-fed-boost
16 Ibid.
17http://www.sustainindy.org/press-events.cfm?news_id=325
18 "Ballard Takes Aim at Vacant Homes,"July 17, 2010, http://mayorgregballard.eom/7.19.10%20Ballard%20takes%20aim%20at%20vacant%20homes.html.
1?
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financing districts (HoTIF) will be considered as possible funding options. Funding received from the sale of the
city's water infrastructure (i.e., Rebuildlndy), which may provide a one-time infusion of funding to critical
infrastructure and development projects around the city will also be considered.
The DMD is evaluating the development of form based codes within the SGRD. This effort will be incorporated
in the HUD Sustainable Community Planning Grant work mentioned above.
Indianapolis Land Bank
The Land Bank acquires abandoned, tax delinquent and other problem properties, holds and maintains them
temporarily, and makes them available to nonprofit or for-profit developers. The Lank Bank offers local CDCs the
opportunity to purchase these properties. The MB CDC plans to use Land Bank funding for acquisition and
rehabilitation projects in the Martindale-Brightwood neighborhoods, with a priority of using this funding in the
"MB2.0" district (described in more detail in Section 2.2.4).
As of the date of this report, the Indianapolis Land Bank holds 52 properties in the SGRD. The Indianapolis Land
Bank is also an active partner in the NSP projects described.
2.2.2 Browntield-related Investments
EPA Programs/Funding
EPA has made substantial investments in the SGRD over the last several years, which have been implemented by
DMD, including:
• 2006 Brownfields Assessment grant funding helped DMD complete its first inventory of brownfields. This
effort identified the location of 195 brownfields and sites of concern in the SGRD.
• $200,000 in Brownfields funding provided for testing, site clearing, and re-grading at the 15-acre Monon
Site at 1100 E. 25th Street.
• Brownfields technical assistance was provided to develop this SGRD Revitalization Strategy and portions
of its implementation.
• $50,000 Brownfields Targeted Brownfields Assessment (TEA) grant provided to conduct Phase I ESA
and Phase II ESA work for 1960 and 1964 Hillside Avenue (abandoned tax delinquent brownfield former
Smith's Diesel Service Station site and illegal dump). With city DMD Brownfield guidance, Bona Fide
Prospective Purchasers status assured by EPA grants, and a state no further action letter, the Filege Hiwyot
Center for youth urban farming will petition the County Commissioners for this tax delinquent deed in
December 2010 and work with Keep Indianapolis Beautiful, Inc., to prepare the 0.2 acre site for urban
agriculture expansion lots.
• $200,000 Brownfields Cleanup grant provided for 2460 North Delaware Street (located just outside the
SGRD); a contaminated former Flowers Cleaners site that DMD acquired through eminent domain when it
collapsed into N. Delaware Street. Cleanup activity began in November 2010.
• Work conducted under a $98,000 CARE grant by Improving Kids' Environment (IKE) and Martindale-
Brightwood Environmental Justice Collaborative will be completed in fall 2010. The organizations will be
applying for CARE 2, with a priority on brownfield cleanup in an area near Station Street (located just
outside the SGRD).
Indiana Finance Authority (IFA) Brownfields Program / Indiana Department of Environmental
Management
Over the past four years the city's Brownfields Program has received over $2.6 million in brownfield grant awards
to be used city wide. Funding for recent projects near the SGRD include:
• $100,000 Brownfields Program Stipulated Assessment Grant (SAG) for 2444 North Winthrop Avenue, a
former Colonial Bakery maintenance facility site, and ground water delineation on adjacent parcels (now
owned by KPADC). Work to be bid fall 2010.
• $134,000 Brownfields Program Petroleum Remediation Grant (PRG) that removed underground storage
tanks from the former Colonial Bakery maintenance facility site and removed contaminated soil.
18
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G8
• $25,000 Brownfields Program SAG to complete further delineation of the 2422/2430 Yandes Street, the
abandoned and contaminated Titan Industries, Inc. plating facility. Work to be bid fall 2010.
• $60,000 Brownfields Program SAG for Phase I ESA and subsurface investigation (Phase II ESA) of the
2108 -2110 Columbia Avenue former junkyard site. This is the site of Development Concepts Inc.'s future
National Apartments affordable and market rate housing development (see more information below).
• $40,000 of IF A Brownfields Program Federal Grant Match funding for the 2460 N. Delaware Street
brownfield site for remediation at former Flowers Cleaners site (located just outside the SGRD).
• Technical assistance for soil rehabilitation using compost demonstration project in cooperation with
Kansas State University at the Monon Site.
• $618,000 in a series of five separate brownfield assessment and remediation grants for the assessment and
remediation of the 6-acre former Ertel Manufacturing Corporation abandoned foundry site. This over $6
million assessment, demolition and cleanup project ushered in $21 million in investment and 53 new jobs
to spur brownfield redevelopment in the SGRD.
Indianapolis DMD Brownfield Redevelopment Program
The DMD Brownfield Redevelopment Program is providing technical assistance and coordinating the cleanup and
revitalization of dozens of brownfields across the SGRD (many of these projects were noted above in the EPA and
the IFA sections). In addition, the city has Neighborhood Brownfield Initiative (NBI) grants available to clean up
sites across the city. The following are some of the known projects funded in the SGRD.
• 2009 NBI grant for $20,000 provided for the Project School at 1 145 E. 20th Street. There was a $10,000
match from LISC for the ongoing edible schoolyard project "Safe Soils" investigation to determine if it
would be possible for students to use the back one acre (or some portion thereof) of the former industrial
property for urban agriculture reuse as well as other forms of recreational reuse.
• $10,000 NBI grant application to be submitted, and may be matched by a $10,000 LISC grant, for the
former Production Plating Co. site at 2201 Yandes Street.
• $10,000 2010 NBI grant to Herron High School charter school renovation expansion along the East 16th
Street Corridor.
• $25,000 2010 NBI grant for remediation assistance and underground storage tank removal at a former dry
cleaners site along 30th and Central Avenue in the NSP target area just north of the SGRD.
2.2.3 Transportation- and Infrastructure-related Investments
Indy Connect
Indy Connect is a partnership of the Indianapolis MPO, CIRTA and IndyGo to provide Central Indiana residents
with transportation options and to support future development of the region. The Indy Connect public engagement
process supports Central Indiana's proposed long-range transportation plan (LRTP). The LRTP is a
comprehensive plan that includes several different types of transportation — including rail, buses, road, bikeways,
and pedestrian walkways — that will work together to serve the residents of Marion and surrounding counties, as
shown in Figure 9. It is designed to give Central Indiana a competitive edge and residents options for accessing
locations around the region.
The Indy Connect LRTP would impact the transportation choices available to the residents of Indianapolis, and the
SGRD, by providing more service, destinations, and convenience. On the service side, the LRTP would reduce
average wait times between buses from 30-60 minutes to 10-20 minutes; provide more direct service and fewer
downtown transfers, with 10 additional cross-town routes outside of downtown Indianapolis; provide buses that
run until midnight on the weekdays and 10: 00pm on weekends; provide seven-day -a-week service on all routes
except express bus routes; and add 38 bus routes.
The LRTP would provide access to more destinations through 15 express routes with direct service and 14
community-based circulators for local travel or between nearby communities, as shown in Figure 9. Other
enhancements improving convenience include: real-time route information via text messaging and/or displays at
bus shelters; additional bus shelters, benches, and bike racks; greater access to bus stops with more sidewalks; and
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.c Communities HPA Brownfiold Pilot OS Indianapolis, IN January 201
modern ticketing and fare collection.
More specifically, the LRTP considers several transit options that may impact the SGRD's future development: 1)
a new transit link in the Northeast Corridor, using portions of an abandoned rail corridor to connect downtown
Indianapolis with Noblesville, and 2) increased bus service along several primary corridors.
The Northeast Corridor
The Northeast Corridor plan is still in the early planning stages and a mode (bus, light rail, or heavy rail) has not
yet been selected, although it is depicted in Figure 9 as "rail." The mode will be selected after further study; this is
currently expected to occur in Spring 2011. In the SGRD, the proposed Northeast Corridor would parallel the
Monon Trail. As the project moves forward, there is the potential that the SGRD could have one or more new
transit stops along the Northeast Corridor. Rail systems typically locate stops every 1-2 miles, while bus rapid
transit systems typically locate stops every !/> to 1 mile. If approved, the Northeast Corridor, combined with the
enhanced bus service and bike trails will provide a more robust and equitable transit system for the city and
SGRD.
Bus Service
In primary corridors, the LRTP calls for increased bus frequency to reduce headways from approximately 30
minutes to 15 minutes during peak service times, add amenities such as shelters and benches, increase walkability.
This service will have a more modern look than a conventional bus and the ability to control traffic signals to
reduce travel times.
The LRTP proposes changes to existing bus service and routes. The LRTP proposes that three bus routes would
service the SGRD: proposed Routes 2, 5, and 18 (see Figure 10).
Proposed Route 5 would have 15 minute headways during peak service and 30 minute headways during off-peak
service, while proposed Routes 2 and 18 would have 30 minute headways all day. In addition, portions of the bus
routes that run along Fall Creek, Massachusetts Avenue, and College Avenue would have express bus service, but
it is not clear whether these bus routes will have stops in the SGRD. Nearby, bus rapid transit service is proposed
to run along Keystone Avenue with one stop planned in Martindale Brightwood.
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Partnership for Sustainable Communities EPA Brownfield Pilot o*5 Indianapolis, IN
January 2011
Figure 9: Indy Connect LRTP (as of November 9,2010)
Lebanon "——
•9
»;~.
*£
•••
. I '^""l J,
rtKr-
Dafa source: Indy Connect, November 9, 2010.
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Partnership for Sustainable Communities EPA Brownfield Pilot o*5 Indianapolis, IN
January 2011
Figure 10: LRTP Proposed Bus Routes and Frequency in SGRD
Proposed Route 2
(Central Avenue)
30 minute headways
Proposed Route 5
(16th Street, AJ Brown Avenue, 25th Street)
15 minute peak service headways
30 minute non-peak service headways
Proposed Route 18
(College Avenue)
30 minute headways
The SGRD is the area within the dotted line circle in each image.
Data source: Indy Connect, November 23, 2010.
Rebuildlndy
In August 2010, Mayor Ballard announced that the city recently received $153.8 million to invest in capital
improvement projects through the city's Rebuildlndy program. These funds represent the first set of funds made
available through the city's sale of the water and wastewater systems to Citizens Energy Group. The city expects
"to secure another several hundred million in early 2011."19 In September 2010, the Mayor announced that $55
million had been released for bid and more than $35 million in infrastructure improvement projects had already
been awarded to contractors, with construction expected to begin in late 2010 or early 2011. As of the writing of
this report, it is not clear whether any of the funding is currently allocated to the SGRD; however the Community
Investment Committee is currently considering candidate projects.
2.2.4 Community-based and Nonprofit Activities
SDAT Implementation Committee
The AIA SDAT Green Design Report described in Section 1 generated dozens of recommendations for the SGRD
and the SDAT Implementation Committee has been established to implement many of these recommendations.
The committee is currently identifying priorities from the SDAT Green Design Report, developing an
implementation schedule, and securing long-term commitments. The SDAT Implementation Committee wants to
have an active voice in the transportation planning that may occur in the SGRD through Indy Connect.
Martindale-Brightwood CDC (MB CDC)
The MB CDC is focused on creating opportunities for affordable homeownership and encouraging economic and
business foreclosure prevention, workforce development, and environmental justice. MB CDC has programs for
homeowner repair, in addition to programs related to property acquisition/rehabilitation and affordable rental
housing. MB CDC partners with private developers on revitalization projects.
19 www. indy.gov/eGov/Mayor/PR/2010/Documents/PR%20--
%208%2019%2010%20CITY%20SECURES%20$153%208%20MILLION%20FOR%20MAYOR%20BALLARD%27S%20REBUILDINDY%20PROG
RAM.pdf
77
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.c Communities HPA Brownfiold Pilot OS Indianapolis, IN January 2011
MB CDC has prioritized its activity and investments in an area designated as Martindale-Brightwood 2.0 (MB 2.0)
which does not overlap with the SGRD. The MB CDC plans to continue its focus on this area in the coming years,
in addition to the SGRD. Within the MB 2.0 area, the MB CDC has conducted homeowner repair projects, lead
hazard remediation, weatherization projects, partnered with Habitat for Humanity to build homes, and worked with
the Indianapolis Department of Public Works on infrastructure improvements along 25th Street. The MB CDC is
working with Fifth Third Bank and LISC/National Equity Fund to rehabilitate houses that have been stripped of
valuable materials, with a focus on properties in the MB 2.0 area. MB 2.0 is the site for the Church Federation
Centennial Village Project in 2012 that will build 10 new houses and develop a unity park.
MB CDC has been a lead partner to develop the Martindale-Brightwood Quality of Life Plan. On a related note, in
Martindale-Brightwood, a $2.5 million grant from the Department of Education's Full-Service Community
Schools Program will be used in three schools (51, 56, and 59) to provide social services, job development, and
housing assistance to students' families.
King Park Area Development Corporation (KPADC)
KPADC supports economic development and neighborhood revitalization in the King Park Area, an area directly
north of downtown. KPADC was an active partner in the redevelopment of Fall Creek Place (described under
HUD section above). KPADC regularly partners with private developers, lenders, other nonprofits (e.g., Oasis of
Hope, Rebuilding the Wall), schools and city programs on redevelopment projects to restore density to the area. It
manages home repair programs, infrastructure analysis and enhancement, referrals to other agencies, public safety
programs for residents and actively assists in and offers several assistance programs for business development.
The organization is actively working to make corridor linkages along 16th street and to bring together
neighborhoods around transit oriented development.
For example, KPADC recently partnered with a developer to renovate the Gramse Building, a 1915 apartment
building that will offer units for sale ranging from $70,000 - $146,000. KPADC also has recently remodeled single
family lots into duplex units attracting 2 million dollars in Neighborhood Stabilization Funds and other federal
programs such as HOME.
In 2010, KPADC is applying for a Capital Magnet Fund grant which can be used to finance: (1) the development,
preservation, rehabilitation, or purchase of affordable housing for primarily extremely low-, very low-, and low-
income families; and (2) economic development activities or community service facilities, such as day care
centers, workforce development centers, and health care clinics, which in conjunction with affordable housing
activities implement a concerted strategy to stabilize or revitalize a low-income area or underserved rural area.
Martin University - Promise Neighborhood Institute
In Fall 2010, Martin University was selected as a member of the Promise Neighborhood Institute, which assists
communities interested in participating in the U.S. Department of Education's Promise Neighborhoods program.
The university and its partners will be working to transform the Martin Brightwood community into a Promise
Neighborhood, to improve break the cycle of generational poverty by improving the educational outcomes and
overall life prospects of low-income children and their families.
CDC/Private Developer Redevelopment Planning
Private developers are working with the two CDCs on a development plan, that will include the SGRD. The plan
will focus on housing development and development of vacant sites. This plan will serve as a working tool for the
CDCs to identify development projects that are feasible from a real estate market perspective and neighborhood
need.
Local Initiatives Support Corporation (LISC)
In 2006, LISC helped establish Great Indy Neighborhoods Initiatives (GINI) with a steering committee of
community leaders (staffed by LISC, the City of Indianapolis, and the Indianapolis Neighborhood Resource
Center) that guides revitalization in demonstration neighborhoods. It also helped establish a Center for Working
Families program at Oasis of Hope.
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Partnership for Sustainable Communities EPA Brownfield Pilot o*5 Indianapolis, IN
January 2011
2.2.5 Private Sector Activities
Foundations
The following foundations have recently funded projects in the SGRD: Eli Lilly, Annie E Casey Foundation, and
Fairbanks Foundation. Just outside the SGRD, the Central Indiana Community Foundation has taken title to the
recently disinvested School 37 in the Martindale-Brightwood neighborhood and is transforming the site into a
community center.
Private Developers
Private sector investment in the SGRD has largely focused on Fall Creek Place and around the Monon Trail. While
investment in Fall Creek Place has slowed with the downturn in the economy, the neighborhood continues to
attract interest if not investment. The potential for transit parallel to the Monon Trail has created increased interest
in the private investment community and a number of positive investors have moved into the area purchasing
property and stabilizing the area south of 22nd street.
Two individual investors have purchased separate properties along the Monon Trail. One has proposed a live-work
housing development at 19th and Monon and one has proposed a housing development at 16th and Monon. Both
investors view the potential Northeast Corridor (if it is a rail corridor) as a significant driver in the SGRD. One of
the most active private sector entities in the SGRD is Development Concepts, Inc. (DCI), an Indianapolis based
group of developers, architects, and urban planners. DCI
currently owns or controls a number of properties within Fig"re 11: Martindale on the Monon and National
the SGRD concentrated near and along the Monon Trail.
Design District Map
DCI has spearheaded private investment in the district and
has participated in public-private partnerships.
DCI is the driving private sector force behind Martindale
on the Monon, an infill housing development that
prioritizes housing rehabilitation and homeownership
while not displacing existing residents. The development
is bounded by 16th street to the south, 22nd to the north, Dr.
Andrew J. Brown Avenue to the east and College Avenue
to the west. Construction began in 2005, and 35 homes
have been completed and sold, ranging in price from
$140,000 - $290,000. The total investment in the project
totals approximately $7 million (mostly private
investment). Recently, Martindale on the Monon partnered
with the KPADC to offer market-rate and affordable
residential development on Cornell and Carrollton
Avenues.
DCI has also proposed the National Design District
Redevelopment Area (NDRRA) with two sub-districts.
The Live/Work Sub-district is anchored by the National
Design Factory (NDF), a five-building format automobile
factory complex at 22nd and Yandes. Another project
component is National Apartments located at 22nd and
Columbia, with a total budget of $7.7 million including
$266,000 of HUD funding being used for acquisition. The
first tenant of the NDF is The Project School, a new K-8
charter school with a focus on the arts that is currently
serving Indianapolis youth. It is located across the street
from the National Apartment site and has a total budget of $4 million (no HUD funding).
(?) POTENTIAL TRANSIT LINE
(5) THE PROJECT SCHOOL
FUTURE NATK>W.,ABWMEMr$
WELCOME CENTER
SINGLE FAMILY AREA
JTV HILL PARK
O'BANNON PARK
KENNEDY.KING PARK
DOUGLAS PARK
MONON TRAIL
SINGLE FAMILY FOCUS ROOC
IPS h'ONTESSOH SCHOOL
Data source: www.martindaleonthemonon.com/activity.htm
24
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Additional office, light-industrial, retail and residential space in the NDF is currently under development. DCFs
vision for the NDDRA also includes the Business Sub-District, which is intended to serve as a business park for
design oriented businesses and other creative industries. These planned developments are shown in Figure 11.
A2SO4 is also an active developer in and around the SGRD.
Interviews with private developers revealed barriers to private investment and activity in the SGRD including: low
property taxes on vacant parcels make acquisition difficult; appraisals and financing constrain the private market;
connection fees to utilities are high; low demand in the SGRD has resulted in low lease rates/sales prices and
without public subsidy, market rate and affordable housing is difficult to develop; and code enforcement and
penalties could be strengthened. Interviews confirmed a lack of coordination among developers, a challenging
regulatory climate, and tight financial markets as constraints on economic development. This is further
complicated by challenging socio-economic demographics, a perception of crime in the SGRD, and a mixed
perception of school performance, depressing residential demand.
2.2.6 Potential Economic Development "Local Synergies"
In addition to the many investments occurring throughout the SGRD (described throughout Section 2.2), the
Technical Assistance Team identified four SGRD assets that are in a nascent stage, but if nurtured, could spur
economic development: 1) active public and private entities; 2) using educational institutions as an economic
driver; 3) promoting urban agriculture; 4) and promoting Monon Trail initiatives. These assets are described in
detail in Appendix A to help local stakeholders think creatively about how to transform these assets into economic
drivers—and how to pursue other forms of economic development that are not presented as Actions in this
Revitalization Strategy.
2.3 Analysis of Initial Findings
Sustainable communities link mass transit to higher population density in order to reduce their carbon footprint,
provide transportation choice, and create opportunities for mixed uses and mixed housing options. In general, the
SGRD is a desirable area for growth because it restores historic urban patterns, is close to the CBD, has existing
infrastructure, and can provide affordable housing for local residents.
Originally, Indianapolis' trolley lines linked neighborhoods to the larger job centers. Smaller commercial centers
were typically located at local stops. While the automobile has effectively erased these patterns in the second ring
of the city, that pattern remains vital in neighborhoods such as Broad Ripple. Some bus lines trace former streetcar
patterns in the city. Re-linking transit with residential and commercial development is crucial to the success of any
sustainable community plan. Providing increased service in these areas in turn requires a relatively dense
population in order to supply the necessary ridership. Indianapolis as a whole is not very dense—2.0 d.u. per
acre—making it one of the least dense cities in North America.
2.3.1 The SGRD Historic Block Pattern
Typical lot sizes in the SGRD are 1/8 acre with a majority of the lots as single family homes. Assuming roughly
20 percent of the land is used for roads, parks and infrastructure, the SGRD is estimated to support approximately
6 d.u. per acre, and approximately 30 d.u. per block.
In the 1930s, the average household size in Indianapolis was approximately 4.11 people per d.u.; it is estimated
that an average block in the SGRD housed approximately 123 people (see Figure 12).
The historic block patterns of the SGRD worked in the 1930s when streetcars provided quick access to the central
business district downtown, and smaller commercial centers were typically located at local stops. Despite the
primarily single family home block structure, there was sufficient density to support streetcar transit.
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Figure 12: The SGRD Historic Block Pattern
30 d.u. per block x 4.11 people per d.u. =
123 peopk^lock
This level of density is echoed in today's standards for sustainable neighborhood development. Groups like the
AIA and the Congress for New Urbanism (CNU) make general rules for density, including density standards for
transit oriented development (TOD). These numbers must correspond to reasonable market calculations in order to
sustain both the residential and commercial areas of the urban pattern. In addition, these density standards often
are used to evaluate transit stop locations.
CNU's TOD Density Standards are based on transects, or form-based planning areas that typically consist of
central cores that become less dense as one moves away from the center. The general transects are designated as
one of three urban types—the Hamlet, the Village Center and the Urban Core—with varying densities as shown in
Figure 13.
Figure 13: TOD Density Standards Applied to the SGRD
Urban Type
Hamlet
Village Center
Urban Core
Core
General density
Edge conditions
Core
General density
Edge density
Core
General density
Edge Density
CNU Density Standard
4.5 - 12
3.5-4.5
No greater than 0.25
(1 d.u./20 acres)
Up to 12
4.5
3.5-4.5
up to 18-36
up to 12-18
4.5-12
d.u.
d.u.
d.u.
d.u.
d.u.
d.u.
d.u.
d.u.
d.u.
per acre
per acre
per acre
per acre
per acre
per acre
per acre
per acre
per acre
Estimated Density in SGRD
22.5 - 60
17.5-22.5
No greater than 1.25
(4 d.u./5 blocks)
Up to 60
22.5
17.5-22.5
90 - 180
60-90
22.5 - 60
d.u. per block
d.u. per block
d.u. per block
d.u. per block
d.u. per block
d.u. per block
d.u. per block
d.u. per block
d.u. per block
Using today's standards, the historic development pattern of the SGRD (30 d.u. per block) is considered Urban
Core Edge Density (22.5-60 d.u. per block).
23.2 The SGRD Block Pattern in 2010
Since the 1930s, population has declined in SGRD neighborhoods. Vacancy in the SGRD is estimated at 32
percent, or 20 d.u. per block—below the Urban Core Edge Density standard. Another implication of the SGRD's
vacancy rate is its effect on the population density (i.e., number of people living on each block). Over the last
century, the average household size has decreased to 2.65 people. When coupled with the high vacancy rates seen
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in the SGRD, the average number of residents per block is roughly estimated at 53 people per block, as illustrated
in Figure 14. Compare this with the estimated 123 people that lived on each block in the 1930s.
Figure 14: Historic Block Pattern with 2010 Vacancy and Household Size
20 d.u. per block x 2.65 p/d.u. = 53 people/block
Although the physical block pattern can support 22.5-60 d.u. per block of Urban Core Edge Density, the
population density falls well below what today's density standards imply (see Figure 15). The Urban Core Edge
Density suggests that an average block in the SGRD should support 60-159 people (assuming an average of 2.65
people per d.u), yet it is estimated there are only 53 people per block.
Figure 15: Population Density in the SGRD
Target Density
Urban Core: Edge Density
Urban Core: Edge Density
CNU Density Standard
Estimated Density in SGRD
4.5 -12
X2.65
d.u. per acre
people per d.u.
22.5 - 60
X2.65
d.u. per block
people per d.u.
12-32 people/acre
2010 estimated population density in the SGRD:
60 -159 people per block
53 people per block
The Leadership in Energy and Environmental Design (LEED) for Neighborhood Development (LEED-ND)
Rating System provides another lens through which to evaluate urban plans. LEED-ND standards are flexible and
give points for a number of design issues. Rather than establishing strict form based design criteria, LEED-ND
works on a point scoring system and includes multiple factors for smart growth including TOD, low ecological
impact, brownfields redevelopment, walkable communities, mixed uses, and a number of other building and
landscape design factors. The minimum residential density required for LEED-ND certification is 7 d.u. per acre.
Increasing density results in more points being assigned to a certification (e.g., residential density of 14-18 d.u. per
acre earns 2 points while 19-25 d.u. per acre earns 3 points).
LEED-ND encourages mixed uses in residential districts to provide neighborhood-serving retail. Commercial
patterns are more difficult to designate due to changes in shopping scale and market calculations for regional
rather than local consumer bases. The historic city pattern at pre-war densities that supported corner commercial
establishments has also been diminished by the SGRD's population loss between 1930 and 2010. The population
reduction means that in order to have an equivalent local customer base, the number of dwelling units would have
to increase accordingly. An increase in population density to meet the Urban Core Edge Density Standard should
improve the commercial prospects in the area which are currently underserviced.
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3. SGRD Revitalization Strategy:
Strategically Build Walkable Neighborhoods to
Support a Transit-oriented Future
The future of the SGRD lies in the hands of its residents. This Revitalization Strategy provides a prioritized list of
five actions and their supporting activities that local stakeholders can pursue to achieve revitalization goals within
the SGRD. This approach to redevelopment builds upon existing plans and assets and creates a better environment
in which to live and work.
3.1 SGRD Revitalization Strategy: Background
There are many investments occurring in the SGRD that are designed to raise density and spur revitalization, but
as highlighted in Section 2, many of these activities are not coordinated strategically with one another, which
diminishes their ability to create walkable neighborhoods and impact the density of the SGRD as a whole. There
are many valid reasons driving this such as: competing organizations/interests; lack of communication and
resources; lack of a comprehensive strategy; and the newness of the SGRD itself and how it overlaps existing
neighborhood boundaries.
However, an unprecedented opportunity for revitalization within the SGRD has emerged in the last year.
• The Partnership for Sustainable Communities is coordinating and leveraging federal policies and funding to
catalyze development that links housing, transit and environmental improvements. As one of EPA's first
Brownfield Pilots, Indianapolis is uniquely positioned to leverage this partnership, federal funding and
attention on the SGRD.
• The City of Indianapolis (through DMD and its Office of Sustainability) is launching Rebuildlndy to fund
infrastructure projects across the city; expecting to embark on a major demolition program to address
abandoned property across the city; disbursing a variety of HUD funding; and encouraging the widespread
adoption of sustainable approaches to the built environment across the city.
. If the Indy Connect TIP is adopted, the SGRD could receive enhanced bus service and possible a transit
stop along the Northeast Corridor, bringing significant opportunities for sustainable development and
revitalization.
This Revitalization Strategy is designed to capitalize on this momentum and prioritize actions to strategically build
walkable neighborhoods to support a transit-oriented future. Based on interviews with stakeholders, the Technical
Assistance Team identified three primary guiding principles for the revitalization of the SGRD:
• Preserve and restore the historic single-family home fabric of the neighborhood through infill development
that minimizes or avoids displacement of existing residents
• Create sufficient density (e.g., 60-159 people per block) to attract continued bus service enhancements and
a stop along the Northeast Corridor if it is constructed
. Improve the prospect for neighborhood commercial development and job growth
In order for the SGRD to successfully achieve revitalization to create walkable neighborhoods and that supports all
three guiding principles, the Technical Assistance Team suggests that infill development be combined with
pockets of greater density at the nodes of planned or existing transit systems and major arterials. Small
improvements scattered across the SGRD will not be sufficient.
Building on the initial findings and analysis presented in Section 2, Figure 16 demonstrates a conceptual new
block pattern that could significantly increase density in the neighborhood, while preserving the vast majority of
existing single family homes. First, the conceptual new block pattern assumes infill development restores the
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majority of vacant lots into single family homes. It then layers in higher-density units in strategic, limited locations
to create walkable neighborhoods.
For example, if one were to take the last six lots on every third block which is the average distance between bus
stops (these blocks are noted in Figure 16 as 1,2, and 3), and substitute the six single family houses for 21
townhouse apartments, one could begin to achieve the target population density in the SGRD. The "walkable
neighborhoods" could be planned strategically to align with transit stops and along major streets, to provide
improved access to transit and a variety of housing types including affordable housing.
Figure 16: Conceptual SGRD Block Pattern to Create Walkable Neighborhoods
New block pattern with 21
3- to 4-story townhomes
replacing 6 single family lots and
infill development on interior of
block.
45 d.u. per block x 2.65 people
per d.u. = 120 people^lock
It is important to note that the walkable neighborhoods cannot be met by higher density development on the edge
of the block alone. Infill development of the remaining lots is critical to achieving the walkable neighborhoods. In
addition to meeting the Urban Core Edge Density Standard, this conceptual new block pattern achieves a
population density close to historic pattern of 123 residents per block.
SGRD projects like 16 Park on 16th Street (see proposed concept plans in Figure 17) and National Apartments on
the Monon, a 62-unit project at 22nd Street, are practical examples of walkable neighborhoods and the scale of
higher density development that could be targeted for these blocks. Modifying the block pattern as suggested here
would provide sufficient density to support transit (123 people per block), and likely neighborhood serving retail.
Changing the density standards in the SGRD can add a variety of real estate options for a broader economic
market, and offer the potential for new commercial and live-work units that would add to the largely single family
and duplex residential fabric. A slightly denser building type would increase the neighborhood population in
appropriate areas near mass transit and public
open spaces. This type of targeted Figure 17: Proposed Concept Plans for 16 Park Project
development would also serve as a catalyst
for additional development, just as Fall Creek
Place and Martindale on the Monon have.
This creates a future opportunity for new
residential areas to fill in the fabric.
For maximum impact, it is recommended that
this development pattern be strategically
planned for and prioritized along transit lines
(bus priority corridors or the Northeast
Corridor), and on vacant and brownfield
properties.
Source: Indianapolis Housing Agency + Insight Development Corp.
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3.2 SGRD Revitalization Strategy: Prioritized Actions
The Actions described in this section are designed to prioritize the necessary steps to achieve walkable
neighborhoods that have the proposed density approaching 123 residents per block, and to strategically locate this
density for maximum impact.
The SDAT process noted minimal partnerships, fragmentation and conflict within the SGRD, and that cross-sector
partnerships involving the private sector and nonprofit organizations as well as citizens will be imperative for
community success. Most of the Actions and Activities presented will require a strong local champion and many
local project partners—in addition to the Partnership for Sustainable Communities—in order to be realized.
These Actions also require a coordinated funding strategy. Strategically targeted government funding can spur
longer-term and greater-value private development. For more information on available federal, state and local
government funding sources, see Appendix B.
Technical assistance through the Partnership for Sustainable Communities Brownfields Pilot will be provided by
EPA to assist local stakeholders in completing a limited number of the activities listed.
Action 1: Identify locations for walkable neighborhood development sites adjacent to transit
routes
This Action includes a series of activities designed to identify the most appropriate locations to create walkable
neighborhoods, centered around higher-density mixed-use development proposed in the Conceptual SGRD Block
Pattern presented in Figure 16.
Activity la Assess transit-oriented design and development opportunities and constraints within the
SGRD relative to the Conceptual SGRD Block Pattern. Create supportive mapping to visually
depict major transit routes, bike paths and trails, and possible transit connections within the SGRD.
Coordinate with Indy Connect to incorporate transit plans into SGRD planning. Identify and
coordinate with Indy Connect regarding preferred future bus and rail stop locations based upon
development opportunities and TOD planning practices.
Activity Ib Based upon the assessment outlined in Activity 1, develop guiding principles for strategically
creating walkable neighborhoods according to SGRD principles (e.g., establish density targets;
strategically link walkable neighborhood development with transit routes; prioritize the use of
brownfields, petroleum brownfields, vacant and abandoned sites; support infill development).
• Consider existing higher density development and draw connections to existing and
proposed transit stops (e.g., bus and rail) via pedestrian and bicycle paths.
• Create density cores adjacent to existing and proposed transit stops. Consider an average of
12 d.u. per acre (60 d.u. per block) for the high density locations as a model.
• Create a phasing plan (i.e., color-code map) that prioritizes sites for future development.
Activity Ic Identify sites for targeted walkable neighborhood development, creating density cores in the
SGRD. These sites could be located at transit stops, locations with pedestrian/bike connections,
sites for future expansion of initial density, or locations with a concentration of vacant properties,
brownfields or city-owned property. In addition, proximity to interior blocks that should be targeted
for infill development should be prioritized. A key goal of this task is to identify opportunities to
combine parcels to achieve development priorities.
Activity Id Determine land-use requirements and/or changes necessary to achieve walkable
neighborhood development and identify the process for approval of any digression from existing
land-use policies for selected sites. Existing land-use maps of the SGRD will be modified to reflect
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Partnership for Sustainable Communities EPA Brownf ield Pilot CS Indianapolis, IN
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proposed SGRD land-use based upon guiding principles.
Activity le Develop a proposed SGRD density land-use map based on guiding principles. The SGRD density
land-use map would use color-coding similar to existing city land-use maps and indicate zoning
changes or the adoption of form based codes. The two maps would be presented side-by-side to
highlight proposed changes.
Activity If Develop graphic depictions of walkable neighborhood development (e.g., massing studies of
townhome style and mixed-use development at the end of selected blocks). These graphic
depictions should be 3D photographs showing density in targeted locations or similar for
community consideration.
Activity Ig Coordinate with Indy Connect regarding SGRD guiding principles and target sites for
consideration as transit plans are established and refined.
Activity Ih Identify funding sources for Action 1, and develop strategic plan for pursuing external funding
(e.g., grants, technical assistance) (see Appendix B for information on some potential funding
sources). Consider: local funding sources such as Rebuildlndy (e.g., for land acquisition or to
improve infrastructure at high density locations), creating a HoTIF, or developing a coordinated
strategy to pursue federal and state grant funding.
Participants supporting this Action and its Activities may include: City of Indianapolis, Indy Connect, IndyGO,
EPA, HUD, DOT, KPADC, MB CDC, SGRD Advisory Committee, and SDAT Implementation Committee.
Action 2: Develop design criteria for higher-density development within walkable
neighborhoods
Building from Action 1 which focused on identifying locations for walkable neighborhood development, Action 2
describes a series of Activities related to developing design criteria for the higher-density development (i.e., the
townhome style and mixed-use development at the end of selected blocks) proposed Conceptual SGRD Block
Pattern presented in Figure 16.
Design criteria will help establish density targets to support the viability of a stronger commercial core and justify
the cost associated with public projects and services in the area such as increased bus service, street improvements,
improved street lighting, street trees, and security. Design criteria can encourage a mix of building types to yield a
lively mix of age and user groups that make for a more diverse and vital urban life. Design criteria can also
establish targets for longer term goals like energy savings, street wall standards, and physical consistency that
affect the image of the neighborhood.
In keeping with the character of the existing neighborhood, the broader context of the area, and corresponding to
existing typologies found along Meridian Street, 16th Street and specific building sites on College Avenue, design
criteria for higher density development could take the form of a relatively low 3-4 story townhouse or courtyard
building type. Design criteria considerations might also include accommodations for covered parking, mixed-uses,
semi-public spaces associated with the building type and design codes for achieving LEED building standards,
form based coding for street wall standards, and LEED codes for green landscaping and infrastructure.
Activity 2a Develop design criteria for higher-density development (e.g., height, setbacks, parking ratios,
housing type, landscaping, stormwater management). Work should include analysis of existing
conditions and architectural details in and around the SGRD. A possible option is to create a 'kit of
parts' to reflect general standards for future development and construction within the SGRD. This
'kit' could outline general guidelines for preferred styles and materials that achieve development
goals and sustainability standards. This activity should be closely coordinated with the 2010 HUD
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Partnership for Sustainable Communities EPA Brownf ield Pilot CS Indianapolis, IN
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Sustainable Communities Challenge Grant to be administered by DMD to, in part, test and/or create
a form based code in the SGRD.
Activity 2b Establish targets for sustainability, affordable housing (this may be prescribed), and
commercial development based on a market study. Targets for sustainability may be based upon
best practices and guiding principles identified in LEED or similar guidance. Affordable housing
targets may be prescribed based upon current standards and funding programs. The targets for
commercial property should be based upon further study of the SGRD and demographic data.
Activity 2c Develop a prioritization process for acquisition and cleanup of brownfields and petroleum
brownfields based on the density and transit targets (e.g., suggest using the EPA PREPARED
Workbook (expected to be final in late 2010) for guidance)
Activity 2d Incorporate priority sites for higher-density development including the Consolidated Plan,
Comprehensive Master Plan, and any proposals for land-use regulation amendments.
Activity 2e Reduce barriers to private and sustainable development, and establish incentives for projects
meeting land use and design criteria in the SGRD.
Activity 2f Identify funding sources for Action 2, and develop strategic plan for pursuing external funding
(e.g., grants, technical assistance) (see Appendix B for information on potential funding sources).
Consider: local funding sources such as Rebuildlndy (e.g., for land acquisition or to improve
infrastructure at high density locations), creating a HoTIF, and developing a coordinated strategy to
pursue federal and state grant funding.
Participants supporting this Action and its Activities may include: City of Indianapolis, EPA, HUD, KPADC, MB
CDC, SGRD Advisory Committee, and SDAT Implementation Committee.
Action 3: Promote infill development on selected blocks to create walkable neighborhoods
Infill development of the blocks with high density edges must occur in order to achieve walkable neighborhoods
and return the vibrancy of the block. Infill development of the single family homes that currently characterize the
SGRD is a critical component necessary to resolve the vacancy rates within the SGRD. In addition, it is necessary
to infill the many vacant parcels in the district to support commercial establishments and desired improvements to
the public areas of the SGRD.
Infilling blocks requires less infrastructural change, supports the scale of historic urban areas, and allows for a
range of developers to benefit from any public project incentives. Infill should not require any changes to the
building code or zoning. The relatively inexpensive land, access to schools, proximity to the CBD and downtown
cultural facilities, and proximity to good public parks and trail systems are not only criteria for an ecologically
strong plan but are also attractive market criteria for new development. Infill will allow current residents to remain
in the neighborhood, while helping bring the density closer to historic levels that originally supported transit and
needed neighborhood services.
Note: All of the following Activities will refer back to the geographic areas identified under Action Ic for
walkable neighborhood development. While infill should be encouraged throughout the SGRD, the city should
prioritize infill on selected blocks that are identified for walkable neighborhood development.
Activity 3a Identify and prioritize vacant sites for infill development sites using the vacant properties map
presented in Figure 4. Property ownership and tax status should be incorporated to the extent
available through the city's GIS system.
• Develop a color coded map to sort vacant property by land use (i.e., commercial,
residential, industrial).
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January 2011
• Sub-categories could be created to identify brownfields, ownership and other property
details.
Activity 3b Identify and prioritize city-owned lots for infill sale/development by expanding the city-owned
property map presented in Figure 6. Prioritization of sites will be based upon density targets and
guiding principles.
Activity 3c Identify priority brownfield sites for infill development, based on the prioritization process for
acquisition and cleanup of brownfields and petroleum brownfields developed under Activity 2c.
Activity 3d Consolidate and provide infill priorities to private and nonprofit developers operating within
the region.
Activity 3e Incorporate priority sites for infill development, including the Consolidated Plan,
Comprehensive Master Plan, and any proposals for land-use regulation amendments.
Activity 3f Reduce barriers to private and sustainable development, and establish incentives for projects
meeting criteria for infill development. Considering using the SGRD as a test-bed for innovative
infill development programs (e.g., homesteading).
Activity 3g Identify funding sources for Action 3, and develop strategic plan for pursuing external funding
(e.g., grants, technical assistance) (see Appendix B for information on some potential funding
sources). Consider: local funding sources such as Rebuildlndy (e.g., for land acquisition or to
improve infrastructure on infill blocks), creating a HoTIF, and developing a coordinated strategy to
pursue federal and state grant funding.
Participants supporting this Action and its Activities may include: City of Indianapolis, Indy Connect, EPA, HUD,
KP CDC, MB CDC, SGRD Advisory Committee, Habitat for Humanity, Rebuilding the Wall, and Oasis of Hope.
Action 4: Increase usage of Monon Trail within the SGRD
The Monon Trail is an excellent resource for Indianapolis residents, offering walking, biking and events along its
17-mile stretch. However, the Trail is not well used within the SGRD. The negative perception of the Trail through
the SGRD has meant that Trail users tend to leave the Trail just north of the SGRD boundaries.
By increasing activity along the Trail through the SGRD, the negative public perception of crime and safety in the
SGRD will improve. The SGRD can leverage the opportunities brought by increased recreational traffic to foster
economic development opportunities. Economic development endeavors can lead to brownfields redevelopment,
as many of the prime locations along the Trail through the district are brownfields. Improved environmental
conditions, in turn, will bolster the economic activity and Trail traffic numbers.
Activity 4a Develop a Monon Trail Association focused on scheduling events along the SGRD. This
organization could be an outgrowth from IndyParks, an outgrowth from another local trail or
recreation association, or be established through the Chamber of Commerce as a "Friends of the
Trail" program.
• Develop programming plan for the Monon Trail, considering the assets and synergies
identified in Appendix B.
• Identify funding opportunities for programming on the Monon Trail.
Activity 4b Identify partnerships to create new events along the Monon Trail, for example:
• Establish farmers markets in conjunction with urban agriculture organizations and farmers.
• Create SGRD-specific art installations in partnership with the Herron School of Art and
Design and Harrison Center for the Arts.
• Create programs linked to nearby local elementary and secondary schools.
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January 2011
Activity 4c Incorporate Monon Trail into municipal and regional planning, including but not limited to
brownfields and transit programs.
Activity 4d Build a stronger connection to the northern portion of the Monon Trail and the Indianapolis
Cultural Trail.
• Create "gateway" attractions at 16th Street and 30th Street.
Activity 4e Prioritize brownfields for redevelopment along the Monon Trail in the SGRD to target future
development and investment.
Participants supporting this Action and its Activities may include: the City of Indianapolis; EPA; HUD; DOT;
KPADC; MB CDC; SGRD Advisory Committee; SDAT Implementation Committee; Winter Market; Slow Food
Indy; Indianapolis Food, Farm and Family Coalition; Harrison Center for the Arts; Herron School of Art and
Design; Indianapolis YMCA; Indy Runners running organization; John Marshall Community High School;
Marion County Health Department; Central Indiana Community Foundation; The Health Foundation of Greater
Indianapolis; the Rotary Foundation of Indianapolis; Ackerman Foundation; Eli Lilly and Company Foundation;
Key Bank Foundation; PeyBack Foundation; Efroymson Family Fund.
Action 5: Develop communications and outreach strategy
The SGRD suffers from a negative public perception outside of the district; the larger public does not feel that the
district is a safe area and there are no significant attempts to counter this perception. By proactively confronting
current public opinion and providing positive messaging—along with pursuing the revitalization Actions identified
by this Revitalization Strategy—the SGRD can enhance its image and begin to attract more investment and
economic development. A well planned communications and outreach strategy can enhance public perception of
SGRD outside the district.
In addition, residents of the SGRD fear that density may bring along unwanted gentrification effects and displace
long-time residents. Some residents do not fully understand why walkable neighborhoods need added density, or
what benefits they will receive from such development. Because this Revitalization Strategy has integrated infill
development as a major component of its density-building approach, a communications and outreach strategy will
be needed to enhance local residents' understanding of density, transit and sustainable revitalization inside the
district.
Activity 5a Develop an external communications and outreach strategy.
Create protocol for disseminating information and answering inquiries
Identify key external spokespeople for the SGRD
Identify key media contacts
Create an identifiable brand for the SGRD
Develop a schedule for providing regular updates to the public on the SGRD (i.e., once a
quarter)
Host a media event on the Monon Trail to introduce media contacts to key external
spokespeople for the SGRD and build relationship through electronic media
Develop communication materials:
o Create a full-featured website that serves as the clearinghouse for SGRD information
o Create a video of the SGRD to be used as a marketing tool
o Develop a standard press kit
o Create press release and media contact templates
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Partnership for Sustainable Communities HPA Brownfield Pilot C8 Indianapolis, IN January 201
Activity 5b Develop an internal communications and outreach strategy.
• Identify key internal spokespeople for the SGRD
• Develop a schedule for providing regular updates to residents of the SGRD on
revitalization efforts including economic development, real estate development, and
brownfields cleanup (i.e., once a quarter)
• Host a series of public meetings to create dialogue about transportation enhancements,
revitalization strategy, and density between local residents, CDCs and DMD
• Develop communication materials to accurately convey effects of density and enhanced
transit in the SGRD:
o Distribute informational letters to existing owner-occupied and rental homes
o Fact sheet dispelling common misperceptions associated with density
o Fact sheet dispelling common misperceptions associated with Northeast Corridor
Participants supporting this Action and its Activities may include: City of Indianapolis, KP CDC, MB CDC,
SGRD Advisory Committee, Butler University, Ivy Tech Community College and/or Martin University could
serve as a resource for students to develop and manage the communications and outreach strategy as
undergraduate internships or master's program thesis.
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Appendices
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Appendix A:
Local Synergies: Assets for Economic Development
The Technical Assistance Team used VitaNuova's Local Synergy™ process to identify potential economic
development drivers, or assets. Local Synergy™ is a comprehensive approach to identifying and connecting
existing economic, infrastructure, social and natural assets, thereby creating sustainable catalysts for revitalization
and economic prosperity.
Through background research and interviews, the Technical Assistance Team identified four assets that could be
expanded upon in the SGRD:
• Active public and private entities
• Using educational institutions as an economic driver
. Promoting urban agriculture
. Promoting Monon Trail initiatives
These assets emerged from the many activities already occurring in the SGRD; however, in order for them to be
fully developed into economic catalysts, the individual activities need to be coordinated and pursued strategically.
These assets are described here to help local stakeholders think creatively about how to transform these assets into
economic drivers—and how to pursue other forms of economic development within the SGRD.
For each asset described in this appendix, we provide a background description of why the asset emerged through
our analysis. This is followed by a list of "Existing Initiatives" within or related to the SGRD that could potentially
be linked to create an economic development driver. Next, we provide "Examples of Successful Initiatives" where
similar initiatives have been linked together in Indianapolis or other communities. Finally, we provide "Methods
of Creating Synergies within the SGRD," or suggestions of how some of the initiatives identified under an asset
could be linked together to create a "synergy" in the SGRD.
Asset 1 - Active Public and Private Entities
Building connections between public and private initiatives in the SGRD is a key to long-term sustainability and
economic resiliency. When two or more initiatives or businesses are connected, their value and likelihood of
success increase substantially. Sustainable economic growth is achieved through a collaborative approach, where
new public and private partnerships are formed and creativity thrives. Consistent communication and networking
among business, education, community development, and nonprofit leaders helps expand collaborative
partnerships, create opportunities, and build upon successes.
The SDAT process noted minimal partnerships, fragmentation and conflict within the SGRD, and that cross-sector
partnerships involving the private sector and nonprofit organizations as well as citizens will be imperative for
community success. Interviews conducted for this project confirmed a lack of coordination among developers, a
challenging regulatory climate, and tight financial markets as constraints on economic development. This is further
complicated by challenging socio-economic demographics and a negative image outside the district. The SGRD
will have the greatest success in overcoming these issues and fostering a more cooperative and positive
environment if local stakeholders can improve their coordination and information sharing, and work together to
strategically pursue real estate development.
Appendix A A-l
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Existing Initiatives
A number of real estate development projects and businesses are in various stages within the SGRD. These
endeavors are initiated by a variety of entities, including for-profit organizations, nonprofit organizations,
community development corporations, educational institutions, and the city government. Examples of these
projects in and adjacent to the SGRD are:
• Brownfields Redevelopment District
• 16th Street Master Planning Process
• Development Concepts, Inc., Martindale on the Monon
• Development Concepts, Inc., National Design District / Project School
• Wilbur Montgomery, Live-Work Housing (19th and Monon)
Monon Urban Agriculture Farm (25th and Monon)
Proposed Housing Development (16th and Monon)
16 Park Commons (16th and North Park)
Shepherd Community—Jireh Sports Complex (former Douglass Ball Field)
Habitat for Humanity, Martindale-Brightwood Homeownership Projects
Goose the Market (2503 N. Delaware)
Tea's Me Cafe (140 E 22nd)
KPADC Commercial Development, 22 on Delaware
Rebuilding the Wall (multiple sites)
As the list of initiatives suggests, there are a significant number of recently completed, ongoing and planned real
estate development projects in the SGRD. Driven by the large number of vacant properties, many of these projects
have been pursued opportunistically and are scattered across the SGRD. This uncoordinated approach fails to
create the sustainable drivers found in the Fall Creek Place and National Design District approaches. Improving
coordination among major stakeholders, targeting public funding to build momentum, and sequencing projects in
strategically identified geographic areas is fundamental to long-term revitalization.
Examples of Successful Public Private Initiatives
Some of the larger and more successful revitalization projects within the SGRD in recent years have projects based
on private/public partnerships that have strategically pursued new development in concentrated geographic areas.
For example, the Fall Creek Place revitalization project, which focused resources on one core area at a time,
achieved early success and slowly expanded outward.
In the 1990s, many families lived in the Fall Creek Place redevelopment area; however, significant portions of the
neighborhood comprised vacant lots and boarded-up homes as a result of decades of disinvestment.20 The Fall
Creek Place development began in 2001, when the Indianapolis Department of Metropolitan Development utilized
$4 million of HUD Home Ownership Zone grant to acquire properties, improve infrastructure and create special
homebuyer financing packages. This funding was combined with $4.2 million in HUD HOME funds, $8.5 million
in CDBG funds, and $14.2 million in other funding sources. Over a dozen project partners, including KPADC,
nonprofits, developers, architects, engineers, and lenders, were involved in the multi-year, multi-phase project.
Four hundred new families joined the long-time residents in first three phases of development, and Phase IV is
now underway. $1.2 million in new annual property tax revenues was generated and more than $19 million in new
household income has been brought into the area.21 The development project continues to attract new investment
today in both the residential and commercial sectors, and provides an example of how strategically targeted federal
20 http://www.fallcreekplace.com/index.php?module=content&func=view&pid=l
21 http://fhasecure.gov/offices/cpd/affordablehousing/programs/hoz/funding/hoz97/lndianapolisln.cfm
Appendix A A-2
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funding, combined with public/private partnerships, resulted in wide-reaching development on portions of 37 city
blocks.
The National Design District, under development by DCI is another example of building upon opportunities and
assets to create synergy. The 46-acre multi-parcel, multi-phase development incorporates education, housing and
commercial uses. The developer is working with public, private and nonprofit entities to finance this extensive
development. DCI recognized the important role that education plays in a community. By developing The Project
School first, momentum was created for commercial and housing uses. In addition, the National Design District
builds off of the region's historic role in the automotive industry creating a unique conceptual driver that will help
attract other investments in the district.
Methods of Creating Public-Private Synergies within the SGRD
Our initial findings identified numerous assets within the SGRD that could be transformed into economic drivers
through partnerships between the public and private sector. Below are a few methods that could be used to connect
existing initiatives to build strong catalysts for revitalization.
SGRD Quarterly Roundtables. In order to facilitate communication and collaboration between the myriad entities
working in the SGRD, the SGRD Advisory Committee or SDAT Implementation Committee could be
institutionalized as the steering committee for SGRD programs. This committee could host quarterly roundtable
discussions that bring together all of the parties involved in the SGRD. This could include private developers,
residents, CDCs, businesses, and the city, among others. These roundtable meetings would offer all parties a place
to present and discuss ideas, offer feedback and coordinate implementation planning. In addition, the Committee
could work with the City of Indianapolis to apply for and utilize public funding in a strategic manner that supports
both public and private sector efforts in the SGRD. This approach would help bridge the significant
communication gaps noted among the public and private sectors in the SGRD.
Asset Mapper. To provide a more complete understanding of development plans and opportunities in the SGRD
and to improve information sharing and coordination, the local CDCs, SGRD Advisory Committee and the city,
could create an interactive online GIS tool to visually depict assets and development in the SGRD. For example,
the Asset Mapper could include planned development, development underway, available parcels, existing
commercial development (including types), and infrastructure (both existing and planned). This central repository
can serve as an information resource for development, but more importantly, provide local stakeholders with the
data they need to push revitalization activities forward and in a more coordinated way. A key component of this
Asset Mapper is to ensure it is consistently maintained and up-to-date. The information provided in this GIS based
system could be a critical resource to future public-private initiatives and in securing future funding resources. To
pursue this idea, the following may be potential organizations to contact: City of Indianapolis GIS Department,
DMD, MB CDC, and KPADC.
District Walks. On a semi-annual basis, and working with DMD, the steering committee for SGRD programs
could host SGRD Walks which celebrate the successes and identify opportunities within the district. The event
could kick off with an opening by the Mayor and local organizations and include a walk through the SGRD,
stopping at various locations for short presentations. Walk participants could include residents, business owners,
property owners, city staff, and potential developers. This SGRD Walk could highlight properties currently
targeted for public investments such as brownfields cleanup and infrastructure improvements. In addition, city-
owned properties targeted for sale, nonprofit programs and private developments could be featured stops along this
walk. The primary purpose of this suggested activity is to open public-private lines of communication, highlight
properties targeted for investment and encourage public-private partnerships on specific sites and in specific
neighborhoods. To pursue this idea, the following may be potential organizations to contact: SGRD residents,
property owners, developers.
Appendix A A-3
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Partnership for Sustainable Communities HPA Brownfield Pilot C8 Indianapolis, IN January 201
Asset 2 - Education as an Economic Driver
The SGRD has access to a predominantly untapped resource in the vast number of secondary and post-secondary
educational institutions located within close proximity. Educational institutions play a central role in creating and
developing an appropriate and agile workforce. Increasingly, studies cite primary and secondary education as the
key to economic development and growth through investments in human capital. At their core, educational
institutions shape their neighborhoods: they educate the children, build community (both with parents and others),
and create a vibrancy that extends beyond their walls. In addition, educational institutions can play a direct role in
economic development when programs are linked with for-profit or nonprofit initiatives.
Existing Initiatives
The SDAT study recommended the expansion of workforce training and increasing support for small business and
entrepreneurship. There are currently a variety of educational institutions and programs located in and around the
SGRD that influence the SGRD and are a resource for workforce training and small business development. These
range from elementary schools to universities and job training centers.
• Elementary and Secondary Schools
. Arsenal Technical High School (9-12): Academy of Creative Expression; Early College Academy;
International Academy; Math, Science, Health and Technology Academy; New Tech High; Career
Technology Magnet
• Fall Creek Academy (K-12)
. Francis W. Parker (K-8J: Montessori model
. Herron High School (9-12)
• H.L. Harshman Middle School (7-8): Math/science, world languages magnet
• John Marshall Community (7-9, soon 7-12): U.S. Dream Academy mentor program; Dream Alive
mentoring and community service program
• Joyce Kilmer School (K-6)
. KIPP Indianapolis Charter School (5-8)
. Oaks Academy (Pre-K-8)
. The Indianapolis Project School (K-8): Project-based instruction; creating an "edible schoolyard"
• Theodore Potter Magnet (K-6): Spanish immersion; Fresh Fruit and Vegetable Program participant;
YMCA after school program
• William A. Bell Magnet (K-6): Math and science technology focus
• Post Secondary Schools
• Butler University: Center for Urban Ecology
• Herron School of Art and Design
• Indiana Latino Institute, Inc.
• Ivy Tech Community College: Office of Workforce and Economic Development; Small Business
Development Center
• Martin University: NASA science lab
• Training, Inc. Indianapolis: Job readiness, office skills and logistics training
Quality education has a major influence on the residential marketplace. Local real estate brokers suggested that a
desire for quality public education was one cause of the decline in the number of households with children in the
SGRD. Over the past few decades, families moved to the suburbs in search of better public education choices.
Significant improvements have been made in the Indianapolis school system and residents now have several
different choices within the public school system. These improvements have led to new interest in the SGRD and
other locations within the city. The National Design District recognized the role of education in neighborhood
stabilization. The investment in The Project School is a significant benefit to the SGRD.
Appendix A A-4
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.c Communities HPA Brownficld Pilot C8 Indianapolis, IN January 2011
There are many other educational resources just outside the SGRD that have the potential to serve as significant
drivers within the District. Butler University, Martin University, and Ivy Tech all offer academic programs with
synergistic elements to market drivers within the SGRD. Universities and Colleges appear to be an underutilized
resource with the potential to create new opportunities within the SGRD.
Examples of Education as an Economic Driver
There are many documented connections between educational institutions and economic development. For
example, the Indianapolis Arts Center hires local artists as faculty and consciously makes an effort to engage the
community in both giving and receiving creative expression. The classes are offered for a wide range of ages and
ability levels. One such class, ArtReach, is a neighborhood-based youth education program, which brings artists to
the neighborhood and encourages student participation in art exhibition.
The University of Wisconsin-Madison offers a unique entrepreneurship program that provides seed money to
student entrepreneurs looking to start businesses both on and off-campus. The Student Venture Seed Grant
program encourages the formation and development of viable businesses within the community. In addition,
cooperative education (co-op) models exist around the country. This structured educational strategy integrates
classroom studies and productive work experiences. Traditionally, these programs are created to enhance the
learning experience. However, when supported by job-training and business development initiatives, the same
partnerships can serve as economic engines for job and industry growth.
Methods of Creating Educational Synergies within the SGRD
Our initial findings identified numerous educational institutions within the SGRD that could be transformed into
economic drivers. Below are a few methods that could be used to connect existing educational resources with the
SGRD in order to build strong catalysts for revitalization.
Local Business Co-ops. A number of the secondary and post secondary schools in and around the SGRD, have
very well-developed technical or vocational programs. These programs train students in a variety of industries,
including auto body and mechanics, welding, carpentry, computer repair, and food service. The schools, working
with the Greater Indianapolis Chamber of Commerce's Education and Workforce Council, could establish a co-op
program for targeted high schools and universities in the area. One potential connection is the Martin University
NASA science lab and the Permanent Magnet Company which is the only U.S. producer of a particular NASA
component. A key aspect of this program could be to create and implement business plans for economic
opportunities within the SGRD. To pursue this idea, the following may be potential organizations to contact:
SGRD high schools, Greater Indianapolis Chamber of Commerce's Education and Workforce Council, local
businesses.
Student Bistro. Technical schools, culinary schools and universities across the country have successfully managed
restaurants and cafes both on and off-campus. Arsenal Technical High School's Career Technology Magnet could
serve as the incubator for a new restaurant, coffee shop or cafe within the SGRD. The educational component
offers opportunities to seek funding beyond the traditional small business sources and creates a unique marketing
advantage. To pursue this idea, the following may be potential organizations to contact: Arsenal Technical High
School.
Locally-Based Employee Policies. In order to encourage local employment, the schools in the District could
implement a hiring policy that specifies that a set percentage of employees live in the District. To ensure that
prospective employees have the relevant training, Ivy Tech Community College, Training, Inc., and local
community development corporations could partner with the schools in the SGRD to create targeted training
courses through Ivy Tech's Office of Workforce and Economic Development. To pursue this idea, the following
may be potential organizations to contact: Ivy Tech Office of Workforce and Economic Development, Training,
Inc., MB CDC, and KPADC.
Appendix A A-5
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Neighborhood-Based Arts. Currently, the Harrison Center for the Arts is a hub of arts-centered activity in the
neighborhood. These activities could be expanded even further by redeveloping the adjacent brownfield and
creating additional outdoor classroom space and an urban garden. The classroom could be used by resident artists
to offer classes to the community. Through a partnership with a local urban agriculture organization, the urban
garden could be a demonstration garden for the community and the local Herron High School Garden Club, as
well as a source of materials or subjects for the artists. In addition, resident artists could work with local schools to
create murals that could be placed adjacent to the Monon Trail. To pursue this idea, the following may be potential
organizations to contact: Harrison Center for the Arts, Herron High School, other local elementary schools.
Asset 3 - Urban Agriculture
The practice of urban agriculture is a potential economic development driver in the SGRD because it provides a
link between healthy food production, greater employment opportunities, and cooperative interaction among
community members and institutions. Underutilized land in urban areas is often left abandoned (such as the many
vacant and abandoned properties in the SGRD), but urban agriculture (including community and backyard
gardens) puts this land back to productive use, saving on energy and transportation costs. Currently, approximately
15 percent of the world's food is produced in urban areas and increasingly small and large cities are recognizing
the benefits to fostering a local food system that can have direct impacts on school nutrition, local job training,
healthier lifestyles, and an improved environment.
Existing Initiatives
The City of Indianapolis has numerous initiatives regarding urban agriculture that are currently active. These
programs are run by a variety of entities, including nonprofit agriculture organizations, community development
corporations, educational institutions, and the city government.
• Butler University-Center for Urban Ecology (Campus Farm)
• Mayor Ballard, Office of Sustainability, and the Indianapolis Land Bank (Urban Gardening Program)
• Annual City Urban Farming Forum
• Community Garden Resource Center, Inc
• Devington Community Development Corporation (Green Acres Farm)
• Felege Hiywot Center (Gardening Education Program)
• Global Peace Initiatives (Peace Gardens}
• Growing Places Indy (Slow Food Garden)
• Herron High School (Gardening Club)
• Indy Food, Farm and Family Coalition (Local Food Guide and Community Food Assessments)
• The Project School (Edible Schoolyard)
• Purdue University Agriculture Extension (Educational Programs)
Examples of Successful Urban Agriculture Programs
Currently, there is a number of existing urban agriculture synergies occurring in the city that can be looked at as
examples for the SGRD. For example, Butler University's Center for Urban Ecology (CUE) has partnered with a
number of businesses, educational organizations and community gardens to provide rain barrels and ongoing
monitoring. The collected water is being used to irrigate edible gardens at locations such as The Project School
and Rocky Ripple Community Garden, which alleviates pressure on the city's combined stormwater management
system.
Another existing program can be found at the Devington CDC (DCDC) Green Acres Farm, a 5-acre farm started in
spring 2010 and staffed completely by local residents and students. The farm now provides training opportunities
to local youth and will be an integral part of the new Science Ag Curriculum at Arlington High School.
Additionally, the produce from the farm will soon be sold at a new farmer's market held at the farm. The DCDC
Appendix A A-6
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plans to use the farm as a teaching tool and is partnering with Purdue University Agriculture Extension to offer
classes to the community on healthy eating and food preparation.
Methods of Creating Urban Agriculture Synergies within the SGRD
Below are examples of programs that could be implemented within the SGRD to create partnerships between
urban agriculture programs and related organizations. Included in each description are the organizations that could
play an integral role in moving these initiatives forward.
Soil Testing at Urban Gardening Sites. The recently created City of Indianapolis Urban Gardening Program
provides access to underutilized vacant lots throughout the city to interested parties and organizations for urban
gardening. Before the sites can be used for food production, soils should be tested for lead and other contaminants.
The Marion County Health Department offers free soil testing, which could be used to clear sites for production. A
partnership with a local organization in the SGRD, such as the Martindale-Brightwood Environmental Justice
Collaborative, together with the Health Department and city, could be used to produce a database of available and
safe-for-production sites. This database would function as a clearinghouse for gardening sites within the district
and help track clean sites for future use. This partnership could also provide both coordination and local
monitoring to ensure agriculture is practiced safely. To pursue this idea, the following may be potential
organizations to contact: Marion County Health Department, Martindale-Brightwood Environmental Justice
Collaborative, City of Indianapolis Office of Sustainability.
Arsenal Technical High School Teaching Restaurant. Arsenal Technical High School offers classes on food
preparation and uses a teaching restaurant on campus. The restaurant, Colonel's Cupboard, provides daily meals to
students. Through a partnership with a nonprofit urban agriculture organization, such as Growing Places Indy, the
restaurant could obtain fresh, local ingredients. The Slow Food Garden in White River State Park, run by Growing
Places Indy, is intended as a teaching tool. By partnering with Growing Places Indy, students could learn all
aspects of food preparation, from farm to table. Students could volunteer at the garden to learn food production
skills and use the harvest in the restaurant. To pursue this idea, the following may be potential organizations to
contact: Arsenal High School, Growing Places Indy.
Coldhouses for Year Round Food Production and Job Training. Local community development corporations
could partner with St. Vincent De Paul's food pantries and Training, Inc., a local job-training organization, to
create year round greenhouses, called coldhouses. The coldhouses can be used to provide quality food to the food
pantries and local residents can learn farming job skills. Local farmers and the Purdue University Extension could
serve as training instructors. To pursue this idea, the following may be potential organizations to contact: St.
Vincent De Paul food pantries, Training, Inc., Purdue University Agriculture Extension.
Asset 4 - Monon Trail Initiatives
The SGRD is home to a 1.5-mile portion of the Monon Trail, a 17-mile trail that attract tens of thousands of
visitors each month, particularly north of 38th Street. Usage of the Monon Trail is much lower in the SGRD,
because many users turn off the Monon Trail at 38th Street to link to the Fall Creek Trail. In addition, the high
number of industrial and brownfields uses along the Trail in the SGRD acts as a psychological barrier to using the
Trail more heavily. The Monon Trail divides neighborhoods, and in many ways, the SGRD itself. However, the
south end of the Trail in the SGRD connects with the Cultural Trail in downtown Indianapolis. The two popular
uses north and south of the SGRD suggest that it may be possible to increase Trail usage within the SGRD.
Urban trail and greenway usage is increasingly prevalent in cities across the country. These trails offer inexpensive
and convenient access to recreation for residents and can often serve as alternative routes for work commuting.
Trails can also serve as key economic development drivers by encouraging adjacent development; it is estimated
Appendix A A-7
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that outdoor recreation (including trail use) contributes $730 billion to the United States' economy.22 Since its
beginnings as a grassroots movement in the 1980s, the Monon Trail has grown to encompass almost 17 miles of
trails, which attract tens of thousands of visitors each month, particularly north of 38th Street.
Existing Initiatives
The Monon Trail is currently a very active greenway system, with over 70,000 visitors a month in the summer.
Below are activities and attractions related to the Monon Trail that are currently in existence in the City of
Indianapolis.
• Indianapolis Cultural Trail
• Art Installations
. Gleaners Food Bank, 16th Street
. Urban Art Project, 52nd Street
• Utility Building, Sutherland Avenue
• 54th and Monon Trail Art Fair
• Self-guided hikes (Indianapolis Hiking Club)
• Parks and Preserves
. Soccer Park, 16th Street
. Arsenal Park
• Broad Ripple Park
• Canterbury Park
• Douglass Park
. Dr. Martin Luther King Park
. Marott Park and Nature Preserve
• Watson Road Bird Sanctuary
• Attractions
• Broad Ripple Ice Cream Station
• Carmel Cyclery (bike rentals)
• Indianapolis Art Center
• Indiana State Fairgrounds
. Monon Center (water park and fitness complex)
. Monon Coffee Company
Catalyzing activity on the Monon Trail goes beyond encouraging biking and walking on the Trail itself. It will
require placemaking and revitalization along the Trail to provide vibrant destinations and a pleasant experience for
those who use the Trail.
Examples of Successful Trail Programs
The practice of connecting community organizations with local trails has been a successful catalyst for economic
development across the country and in Indianapolis. For example, the 54th and Monon Trail Art Fair, which began
in 2000, hosts booths from over 60 different artists ranging from watercolors to furniture. The one-day juried fair
started as a way to encourage more visitors to area businesses and local businesses and organizations continue to
play a large role in the fair. Since its first year the number of businesses in the area has almost doubled and the fair
now attracts over 4,500 people.
Other trails throughout the country have also developed connections with local institutions. For example, in
Portland, Oregon, the Portland Trails organization hosts a series of "Discovery Treks" which highlight unique
22 See more information at Economic Impact of Trails, http://www.americantrails.org/resources/economics/index.html
Appendix A A-8
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Portland history and simply encourage residents to get outdoors. The Discovery Treks range from history walks to
games of Capture the Flag. Portland Trails also partners with other organizations to host a weekly 5k run and a 10k
event. These runs not only raise awareness of the trails, but a portion of the entry free goes back to maintaining the
trails. Closer to home, the Monon Greenway now serves as the centerpiece for a vast array of pedestrian-oriented
development in downtown Carmel. The trail connects to a large number of local amenities including parks,
libraries, museums, cafes, bike shops, workplaces, schools, and a farmer's market; many people are now using the
Monon Trail as a transportation corridor. There is potential to generate similar activity within the SGRD.
Methods of Creating Trail Synergies within the SGRD
Below are examples of programs that could be implemented within the SGRD to engage local organizations and
create economic development activities associated with the Monon Trail. Included in each description are the
organizations that could play an integral role in moving these initiatives forward.
Markets on the Monon. Drawing from Indianapolis' strong ties to urban agriculture, the Monon Trail in the SGRD
could host a series of small markets at key intersections. These small markets could bring locally produced goods
to the residents of the district and help to draw people further down the Trail into the district. Multiple markets,
each featuring a different type of goods (e.g., flowers, produce, baked goods, breads), could take place at various
points along the Trail, or there could be a single larger market at a central location. To pursue this idea, the
following may be potential organizations to contact: Winter Market, Slow Food Indy, Indianapolis Food, Farm and
Family Coalition.
Arts Installations. Building on the Indianapolis Cultural Trail, the Monon Trail could create a series of art
installations to attract people. The installations could be created by local artists, through the Harrison Center for
the Arts, or art students at the Indiana University-Purdue University Indianapolis and the Herron School of Art and
Design. To differentiate the Trail in the SGRD, the installations could be interactive, potentially targeted at
children, and build upon each other, drawing people further along the Trail. To pursue this idea, the following may
be potential organizations to contact: Harrison Center for the Arts, Herron School of Art and Design.
Outdoor Recreation. The Monon Trail is an ideal location for hosting regular running and walking events. While
these types of events do take place in other locations on the Trail, they are not occurring in the SGRD. The YMCA
is located just off the Monon Trail, north of the district, and could act as the staging area for weekly activities that
draw people into the district. These activities could be bike rides or running and walking groups. In addition, there
are a number of afterschool programs in the District, many run by the YMCA. As part of the afterschool
curriculum, the programs could use the Monon Trail for recreation, as well as for service projects, such as Trail
cleanups.
Further north of the SGRD, bike shops capitalize on their location near the Monon Trail by renting bikes to ride
the Trail. These shops, or other local shops, could open satellite bike rental stations along the Trail to encourage
recreation. The opening of these locations could be an event sponsored by local healthcare providers and the
Marion County Health Department. To pursue this idea, the following may be potential organizations to contact:
Indianapolis YMCA, Indy Runners running organization, John Marshall Community High School, Marion County
Health Department.
Appendix A A-9
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Appendix B:
Potential Funding Sources to Support SGRD
Revitalization Strategy Implementation
The following federal, state and local government funding resources have been identified as potentially viable to
supporting the Actions presented in the Revitalization Strategy. This list of resources does not include every
possible resource, but was developed to indicate the breadth and type of resources currently available. In addition
to the federal resources listed below, please refer to the Brownfields Federal Program Guide:
http://epa.gov/brownfields/partners/bf_fed_pr_gd.htm.
FEDERAL
Department of Transportation - General
Transportation Investment Generating Economic Recovery (TiGER) II Discretionary Grants
Projects that are eligible for TIGER II Discretionary Grants under the FY 2010 Appropriations Act include, but are
not limited to: highway or bridge projects eligible under title 23, United States Code; public transportation projects
eligible under chapter 53 of title 49, United States Code; passenger and freight rail projects; and port infrastructure
investments, http://www.dot.gov/recovery/ost/tigerii/
TIGER IITIFIA Payments
Up to $150 million of the $600 million available for TIGER II Discretionary Grants may be used to pay the subsidy
and administrative costs of the Transportation Infrastructure Finance and Innovation Act (TIFIA) credit assistance
program if it would further the purposes of the TIGER II Discretionary Grant program. DOT is referring to these
payments as "TIGER II TIFIA Payments." Based on the subsidy amounts required for projects in the TIFIA
program's existing portfolio, DOT estimates that $150 million of TIGER II TIFIA Payments could support
approximately $1.5 billion in TIFIA credit assistance. The amount of budget authority required to support TIFIA
credit assistance is calculated on a project-by-project basis. Applicants for TIGER II TIFIA Payments should
submit an application pursuant to the notice of funding availability and a separate TIFIA letter of interest, as
described in Section VI of the notice.
TIGER II Planning Grants
The FY 2010 Appropriations Act permits DOT to use up to $35 million of the amount available for TIGER II
Discretionary Grants for TIGER II Planning Grants. TIGER II Planning Grants may be awarded, like TIGER II
Discretionary Grants, to Eligible Applicants, and may be used for activities related to the planning, preparation or
design of Eligible Projects, including transportation corridors or regional transportation systems. Applications for
planning assistance may be made alone or as part of a TIGER II Discretionary Grant application.
Applicants seeking TIGER II Planning Grants should apply in accordance with all of the application requirements
specified in the notice of funding availability for TIGER II Discretionary Grants, unless specified otherwise.
Department of Transportation - Federal Transit Administration
Metropolitan and Statewide Planning grants (5303, 5304, 5305)
Available for planning that increases the area's competitiveness in a global market, increases safety, increases
mobility for people and freight, protects and enhances the environment, integrates modes of transportation,
emphasizes preservation of existing transportation system, and integrates activity of transportation improvements
as they relate to local and state planned growth and economic development initiatives.
http://www.fta.dot.gov/funding/grants/grants_financing_3563.html
Appendix B ~Q,\
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Urbanized Area Formula Funding program (5307)
Provides funding for transportation planning and engineering studies that enhance transit projects with an emphasis
on bus related activities. Applications to FTA are accepted on an ongoing basis, anytime within a 4-year period
from when the federal allocation was made (most recently in 2010).
http://www.fta.dot.gov/funding/grants/grants_financing_3561.html
Challenge Grant Program
Funding for transportation investments that will have significant impact on a region, metropolitan area and/or
nation. FY 2009 was the first year for this program. Applications were due July 2010.
http://www.fta.dot.gov/news/news_events_l 1874.html
Transportation Infrastructure Finance and Innovation Act (TIFIA) Program
FTA provides credit assistance to eligible applicants for surface transportation projects with revenue generating
capability (or other source of funding) to bridge the gaps where existing funding and private investment cannot
cover. Letters of interest are accepted once a year. (For FY 2009, the deadline was December 31, 2009).
http://www.fta.dot.gov/funding/finance/grants_financing_9711 .html
New Starts (5309)
Provides funding for construction of new rail systems or upgrade and expansion of existing rail systems.
Small Starts (5309)
Program provides funding for capital projects similar to New Starts program but with variable requirements related
to the system being improved.
Bus and Bus Facilities (5309, 5318)
Through the transit capital investment program, provides capital assistance for activities including upgrading buses,
passenger facilities, other bus facilities, and miscellaneous equipment.
http ://www.fta.dot.gov/funding/grants/grants_financing_3 558 .html
Department of Transportation - Federal Highway Administration
Safe Routes to Schools
Provides funding to facilitate the planning, development and implementation of projects and activities that improve
safety and reduce traffic, pollution and empower children, including those with disabilities, to walk, ride bikes or
otherwise safely get themselves to school. Each state administers its own funding through the DOT. Eligible
activities include planning and infrastructure improvement, http://safety.fhwa.dot.gov/saferoutes/
Recreational Trails Program
Provides funding to states to for developing and managing recreational trails for non-motorized and recreational
vehicles. Examples include hiking/bicycling, skating, etc. There is potential for application along the Monon Trail
to strengthen its service as a community asset that will create amenities for new development in the SGRD. Some
funds are distributed annually to states. FY 2010 apportionment to the State of Indiana Department of
Transportation was $1,409,446. http://www.fhwa.dot.gov/environment/rectrails/
Transportation Enhancement (TE) activities
Provides funding for 12 eligible activities:
• Provision of pedestrian and bicycle facilities
• Provision of pedestrian and bicycle safety and education activities
• Acquisition of scenic or historic easements and sites
• Scenic or historic highway programs including tourist and welcome centers
• Landscaping and scenic beautification
• Historic preservation
• Rehabilitation and operation of historic transportation buildings, structures or facilities
Appendix B B-2
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• Conversion of abandoned railway corridors to trails
• Control and removal of outdoor advertising
• Archaeological planning and research
• Environmental mitigation of highway runoff pollution, reduce vehicle-caused wildlife mortality, maintain
habitat connectivity
• Establishment of transportation museums
Applications are apportioned to state departments of transportation annually. FY 2010 apportionment to Indiana
DOT was $23,737,867. http://www.fhwa.dot.gov/environment/te/
Transportation, Community, and System Preservation Program (TCSP)
Provides research and grants for integration of transportation, community and system preservation plans with a
focus on private sector activity. Eligible projects include but are not limited to developing strategy to encourage
private sector development that supports the program's goals, http://www.fhwa.dot.gov/tcsp/
Department of Housing and Urban Development
Sustainable Communities Regional Planning Grant
Provides eligible entities with the resources needed to plan for an integrated approach to housing, transportation
and environmental protection. 2010 was the first year this program was initiated; applications were due August 23,
2010.
http://portal.hud.gov/portal/page/portal/HUD/program_offices/sustainable_housing_communities/Sustainable%20
Communities%20Regional%20Planning%20Grants
Community Challenge Planning Grants/ DOT TIGER II
Provides funding for planning for neighborhoods, amending zoning and building codes, corridor planning and other
policy amendments needed to achieve mixed-use development, affordable housing and reuse of historic structures.
This joint HUD/DOT NOFA was the first of its kind and applications were due July 26, 2010.
http://portal.hud.gov/portal/page/portal/HUD/program_offices/sustainable_housing_communities/HUD-
DOT%20Community%20Challenge%20Grants
Community Development Block Grants
Regular appropriations to entitlement entities provides funding for most types of development as long as it serves
the purpose of HUD's National Objectives: 1) benefits low to moderate income persons; 2) prevents or eliminates
blight; and/or 3) meets certain urgent community development needs. Local applications are made annually to the
City of Indianapolis Department of Metropolitan Development. Applications for 2011 were due July 30, 2010.
http: //www .hud .gov/office s/cpd/community development/programs/
Section 108 Loans (Brownfield Economic Development Initiative (BEDI) grant)
Section 108 loans provide capital for local CDBG entitlement entity to provide loans for private businesses or other
entities to conduct eligible economic development, housing and public facility projects. BEDI is a grant program
used for brownfields properties and must be used in conjunction with a Section 108 loan. Applications can be made
on an ongoing basis by the local HUD entitlement entity.
http://www.hud.gov/offices/cpd/communitydevelopment/programs/108/
HOME Investment Partnership
Provides direct assistance or loan guarantees administered by the local HUD entitlement entity. Funds are focused
on housing development and activity can include acquisition and rehabilitation of structures for creation of low-
income housing, homebuyer assistance and tenant based rental assistance. Local applications are made annually to
the City of Indianapolis Department of Metropolitan Development. Applications for 2011 were due July 30, 2010.
http://www.hud.gov/offices/cpd/affordablehousing/programs/home/
Appendix B
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Indianapolis, IN January 2011
Neighborhood Stabilization Program (NSP)
Funding used to acquire, rehabilitate abandoned or foreclosed housing. Four 2010 NSP target areas will receive
$29 million, which must be spent by 2013, and will be used for buying, rehabilitating, and demolishing hundreds of
vacant houses. Approximately 530 housing units will be developed. See more information in Section 2 of this
report.
Environmental Protection Agency
Brownfields Assessment Grants
Provides grant funding to local eligible public entities to provide environmental site assessment, technical
assistance, remediation planning, and redevelopment planning for properties with actual or potential contamination.
City of Indianapolis administers abrownfields program and accepts applications for assistance on an ongoing basis.
http://www.indy.gov/eGov/City/DMD/ED/Brownfields/Pages/home.aspx
Brownfields Cleanup Grants
Provides grant funding for eligible entities (public and nonprofit) used for remediation of brownfields properties.
Applications are made once a year directly to EPA. Due date for 2010 applications was October 15, 2010.
Revolving Loan Fund Program
Provides eligible public entities to administer a loan and grant program to fund cleanup of brownfields properties.
Private entities are eligible applicants for assistance through the local administrator of these programs. Applications
by eligible entities are accepted once a year directly to EPA. Due date for 2010 applications was October 15, 2010.
The City of Indianapolis administers a brownfields program and accepts applications for assistance on an ongoing
basis. http://www.indy.gov/eGov/City/DMD/ED/Brownfields/Pages/home.aspx
Neighborhood Revitalization Initiative
The Neighborhood Revitalization Initiative (NRI) is a White House-led interagency collaborative, that is
developing and executing a place-based strategy to support local communities in revitalizing neighborhoods with
concentrated poverty into neighborhoods of opportunity. HUD, Department of Education (ED), Department of
Justice (DOJ), and Department of Health and Human Services (HHS) are examining options for restructuring
federal strategies for distressed neighborhoods. The initiative has begun collaborating on five programs:
• Choice Neighborhoods (HUD)
• Promise Neighborhoods (ED)
• Byrne Criminal Justice Innovation (DOJ)
• Community Health Centers (HHS)
• Behavioral Health Services (HHS)
For more information, including information on grant funding available from and coordination among these
programs under the NRI, please refer to: http://www.whitehouse.gov/sites/default/files/nri_description.pdf
STATE
Indiana Main Street Program
Provides a collection of technical and financial assistance to efforts to revitalize downtowns, corridors and focused
areas working toward economic recovery, historical character and community vitality. Designation as a local Main
Street - helps employ a Four Point Approach focused on: 1) Design; 2) Organization/collaboration; 3) Promotion;
and 4) Economic Restructuring. Downtown Enhancement Grants provide funding to support community based
planning, marketing and restoration efforts in designated Main Street communities. Activity includes promotional
campaigns, branding, facade renovation, building rehabilitation, and other efforts meeting Main Street goals.
Applications are made on an ongoing basis, http://www.in.gov/ocra/2364.htm
Appendix B 5,4
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Indiana Redevelopment Area Designation and Housing Tax Increment Financing
Defined as "an area in which normal development and occupancy are undesirable because of lack of development;
cessation of growth; deterioration of improvements; character of occupancy; age; obsolescence; substandard
buildings; or other factors that impair values or prevent a normal use or development of property." Within a
Redevelopment Area, state law provides a financing mechanism that can be used to aid in redevelopment. HoTIF
(Housing Tax Increment Financing) is that mechanism. The Metropolitan Development Commission (MDC) can
designate a HoTIF, where property taxes—generated by development within the area—are used to pay for
improvements in or near the HoTIF area.
LOCAL
Business Improvement Districts
Business Improvement Districts are locally designated areas in which a fee is assessed whose collective fund
provides for area- or corridor-wide activity such as safety and cleanliness services to ensure a healthy commercial
and residential environment.
Rebuildlndy
In August 2010, Mayor Ballard announced that the city recently received $153.8 million to invest in capital
improvement projects through the city's Rebuildlndy program. These funds represent the first set of funds made
available through the city's sale of the water and wastewater systems to Citizens Energy Group. The city expects
"to secure another several hundred million in early 2011." In September, the Mayor announced that $55 million
had been released for bid and more than $35 million in infrastructure improvement projects had already been
awarded to contractors, with construction expected to begin in late 2010 or early 2011.
Appendix B
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