HomeMy Public PortalAboutFinal_RichmondRising_PlanRICHMOND RISING:
COMMUNITY ACTION PLAN
2019 City of Richmond Comprehensive Plan Update
RICHMONDRISING
2
3
Reserved for Adoption Resolution
RESOLUTION
ACKNOWLEDGMENTS
MAYOR
David M. Snow
CITY COUNCIL
Kelley Cruse-Nicholson
Doug Goss
Misty Hollis
Jeff Locke
Jamie Lopeman
J. Clayton Miller
Gary Turner
Ron Oler
Bruce Wissel
CITY STAFF
Matt Evans
Beth Fields
Kate Kotan
DeAndra Navratil
With additional support from all City
departments.
PLAN COMMISSION
Al Bledsoe
Len Clark
Michael Devine
Bill Engle
Chera LaForge
Joe Price
Aaron Roberts
Vicki Robinson
Greg Steins
STEERING COMMITTEE
Joe Green (Co-chair)
Kathy Lucid (Co-chair)
Aman Bakshi
Dakota Collins
Claudia Edwards
Lily Fishleder
Sharrie Harlin-Davis
Bridget Hazelbaker
Lauralee Hites
Sarah Mitchell
Gary Turner
Mary Walker
Thank you to everyone who participated
in the steering committee, stakeholder
focus groups, cultural review committee,
online surveys, and public open houses.
Your participation was essential to the
success of this planning process.
A comprehensive plan by its very nature is a collaborative effort. This plan would not have been possible without the numerous hours contributed by local leadership, City staff,
and the project steering committee. The following individuals played an important role in the development of this plan.
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INTRODUCTION 9
ABOUT THE PLAN 12
COMPREHENSIVE PLANNING APPROACH 12
PLANNING PROCESS 14
LAYING THE FOUNDATION 19
PLANNING CONTEXT 22
GOAL STATEMENTS 37
ESTABLISHING THE FRAMEWORK 39
REGULATORY FRAMEWORK 41
FUTURE LAND USE AND TRANSPORTATION MAP 56
REINVESTMENT AND REDEVELOPMENT FRAMEWORK 70
FOLLOWING THE BLUEPRINT 91
CRITICAL PATH STRATEGIES 92
UPDATING THE PLAN 106
APPENDIX 109
COMMUNITY DICTIONARY 111
EXISTING CONDITIONS REPORT 112
CONTENTS
8
RICHMOND
IS ON THE
RISE.
9INTRODUCTIONRichmond has always been at the center of activity. With a modest beginning as a
settlement town along the Whitewater River to a terminal point along the National Road,
Richmond has historically been a trading and transportation center for the Midwest.
From those early years as a route through the Midwest, the city rose to become home
to manufacturing giants including lawn mower manufacturers such as Davis, Mo-to
mower, Dille-McQuire, and F&N. For the latter half of the 19th century through the mid-
20th century, Richmond was the “lawn mower capital” and the Richmond section of
the National Road was known as “Millionaire’s Row” due to the fact that it had the most
millionaires per capita in the US. Richmond rose to become a noteworthy place of
business.
Richmond was not just a center for manufacturing. The city boasts a rich history in the
arts - specifically music. In addition to lawn mower manufacturing giants, “Millionaire’s
Row” was home to American architect John Hasecoster, and piano and phonograph
manufacturer Henry Gennett. In 1893, Gennett in partnership with Benjamin Starr,
established and grew their company that focused on the manufacturing of phonographs,
records, and pianos within the city of Richmond. Soon after, the Gennett Studio became
a nationwide destination for jazz artists looking to record. The Friars Society Orchestra,
later known as the New Orleans Rhythm Kings, and Bix Beiderbecke with the Wolverines,
among other artists, made some of their first records in Richmond. Richmond rose to be
known as the birthplace of recorded jazz.
Richmond diversified and evolved. While once known to be a center for lawn mower
manufacturing, Richmond also fostered a love and appreciation for horticulture.
Historically, the city has been the home to premier rose growers and marketers of cut
roses such as Hills Roses since 1881. In 1987, the first public rose garden was planted
to honor the rose heritage. The Richmond All American Rose Garden, the Richmond
Friendship Garden, and E.G. Hill Memorial Rose Garden still exist today in Glen Miller
Park. Richmond rose to become a nationwide name.
While transportation routes and river access once set Richmond apart from other
communities, they are now often seen as barriers to growth and community prosperity.
For years, the City, not unlike many Midwestern communities, focused on vehicular
transportation routes that drew interest away from providing connectivity for pedestrians
or cyclists. Evolving development patterns took the focus off the community’s core
leaving central areas such as downtown and along the riverfront to fend for themselves.
As the economy flourished and then receded, the city’s job markets fluctuated, relocated,
or simply closed. Today, Richmond is at a crossroads.
10
In the 21st century, people can do almost anything, from almost anywhere. To stay
competitive as both a place to live and work, Richmond will need to rise to meet its
new potential: a VIBRANT community where there are opportunities for EDUCATION,
ENTERTAINMENT, and EMPLOYMENT. The Richmond Rising: Community Action Plan
is the result of a 12-month planning effort and is intended to reflect and promote
the vision of the community while also developing forward-thinking strategies that
will combat local challenges including declining population, diversity and quality of
housing, community connectivity, and municipal communication and collaboration.
Richmond Rising isn’t just a plan. It is a movement that allows for reinvestment,
refinement and revitalization. Richmond Rising is the City’s collaborative
approach to the future.
The Richmond Rising movement is focused on maintaining and growing the
city’s quality of life which is supported today by its diverse people, collaborative
organizations, welcoming neighborhoods, and rich cultural amenities. The
complementary Community Action Plan outlines specific goals and strategies that
will allow all Richmond leaders, residents, business owners, and stakeholders to
work together, as a community, to grow the population and workforce, build systems
to support the community, connect the city’s destinations and districts, protect the
region’s natural assets, and celebrate Richmond’s unique history and culture.
To reinvest, refine and revitalize the Richmond community, this Richmond Rising:
Community Action Plan is organized around a fundamental theme of building. Building,
or even rebuilding, does not require a fresh start, or even a blank slate. Instead,
building can be a state of continued improvement, allowing a focus on strengthening
foundational elements so that new, innovative additions can be developed and
supported. Improving upon a city is no different from building a structure in that a
primary focus should be on building a strong foundation and support system. This
Richmond Rising: Community Action Plan outlines a series of foundational elements
as well as strategic improvements that are necessary to ensure that the city can rise to
any occasion.
INTRODUCTION
GROW
This planning
element
encompasses all
things related to
land use development. It is broken
into three overarching categories
including the built environment,
housing and neighborhoods, and
support services. Each of these
things are related and depend on
one another. To GROW Richmond’s
built environment, the City will need
to achieve a more efficient use of
the built environment, focusing
on strategic areas, including well-
designed public spaces, and greater
conservation of land and natural
resources. Furthermore, Richmond
will need to GROW the city’s housing
stock, while also strengthening and
maintaining existing neighborhoods.
To do both of these things, it will
require the GROWTH of Richmond’s
economy, workforce, educational
offerings, public health and safety
institutions, and community services.
CONNECT
This planning
element explores
how Richmond
should be connecting
destinations,
neighborhoods, utilities, and various
modes of transportation. Connectivity
includes all forms of getting from
one place to another and accounts
for not only the movement of people
but also the movement of water,
wastewater, and private utilities. By
CONNECTING Richmond’s destinations
and neighborhoods to multiple modes
of transportation and high-quality public
and private infrastructure systems, the
quality of life within the city can continue
to be enhanced. By CONNECTING
Richmond residents to a diverse set of
open spaces and recreational facilities,
the City can continue to build a strong
sense of community.
PROTECT
This planning element
works to identify and
celebrate the City’s
unique natural assets
so that Richmond
can develop and grow in a way that
PROTECTS the environment in both
the short and long term. Natural
features such as river corridors,
floodplains, natural landscapes, and
gorges are unique and are elements
that cannot be recreated in man-made
built environments. These elements
contribute to the city’s parks and open
spaces but can also be used to support
developments and unique programming.
CELEBRATE
This planning element
recognizes that
Richmond’s history and
culture should never
be forgotten. The
City’s continued success will come from
their historic past, their diverse cultural
offerings and their passionate and
friendly people. By CELEBRATING the
City’s offerings and accomplishments,
all of Richmond’s leaders, residents, and
business owners can take part in the
city’s success moving forward.
The theme of building runs through the four planning “Elements” of this Community Action Plan. The key concepts of each of these elements are summarized
below.
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INTRODUCTION
ABOUT THE PLAN
The Richmond Rising: Community Action Plan will serve as the City’s comprehensive
plan. A comprehensive plan is a guidance document for future growth and
development over the next 10 to 20 years. It serves as a roadmap for effective
decision-making in both private development projects and community initiatives for
the public good. The key components of a comprehensive plan include a snapshot of
current conditions, a vision for the future, and recommendations of how to achieve
the vision and goals outlined within the document.
The purpose of the comprehensive plan is not only to help guide future growth but the
City can also use this plan as a tool to help engineer change by encouraging favorable
development, while allowing for the natural evolution of a growing community. In the
effort to control the quality, quantity, and location of growth, a comprehensive plan
provides the justification for community decision makers to support or deny future
projects or initiatives.
The Richmond Rising: Community Action Plan includes broad policies with
implementation strategies related to the following topics:
• Land Use and Zoning
• Transportation and Utility Infrastructure
• Housing and Neighborhoods
• Parks and Open Space
• Nature Features
• Community Services and Facilities
• Workforce and Economic Development
• Administrative Policies and Procedures
COMPREHENSIVE PLANNING APPROACH
Comprehensive planning is unique in that the final document can be as detailed or
as broad as a community wants or needs. After addressing the three requirements
outlined in the Indiana Code, a comprehensive plan can take a variety of directions.
Both the planning process and approach can be customized to generate the guidance
document desired by the community. Going as far back to the Request for Proposal
(RFP) for this project, the City of Richmond recognized the importance of community
engagement and building consensus around the vision and goals of this document.
This is just one element of the planning process used to generate the final plan.
The Richmond Rising: Community Action Plan is a result of a community-driven
planning process and asset-based planning approach. This approach builds on
the existing assets found within the community and mobilizes decision makers,
individuals, associations, and institutions to come together to develop their strengths,
while also responding to key community challenges. From asset identification to
implementation, this approach works to bring everyone in the community to the
table, creates beneficial partnerships, and cultivates a collaborative environment that
elevates leaders who ultimately drive the process forward. The Richmond Rising:
Community Action Plan was created with the intention that various community groups
would help facilitate the implementation. It is not just for public officials and staff
members to follow but for anyone who is interested in the future of Richmond.
With that being said, the planning process kicked off with an opportunity for the
steering committee and public to identify Richmond’s community assets. This exercise
identified nearly 50 assets ranging from natural features to education institutions and
local businesses. These community assets are critical pieces to the final plan and are
leveraged to better answer or respond to the community’s challenges.
Did you know the Indiana Code 36-7-4-500 series sets forth the standards for developing and evaluating a comprehensive plan?
Required elements include the following:
• A statement of objectives for the future development of the jurisdiction.
• A statement of policy for the land use development of the jurisdiction.
• A statement of policy for the development of public ways, public places, public lands, public
structures, and public utilities.
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PARK
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PUBLIC OPEN HOUSE ASSET MAP
North
14
INTRODUCTION
PLANNING PROCESS
The planning process was broken up into three primary phases including information gathering,
idea and strategy development, and community-driven implementation. Phase One: Information
Gathering is primarily about education. The project team educated themselves about the community
by reviewing past plans and collecting and analyzing demographic and socio-economic data.
Additionally, the project team educated the public about the planning process. Phase Two: Strategy
Development is dedicated to dreaming and envisioning the future. During this phase, the project
team, in coordination with the steering committee, developed the community vision statement,
specific goals, and strategic and measurable recommendations for the plan. Each of these elements
began as an initial idea, then was presented to the steering committee, and evolved throughout the
process based on ongoing public input. Phase Three: Community Driven Implementation is about
taking the recommendations to the next level by identifying specific and measurable action steps
to empower the community’s leaders, residents, and broader stakeholder groups. Building a strong
and sustainable community requires the leadership and effort of everyone- not just City government.
The Richmond Rising: Community Action Plan works to identify other organizations or entities to help
assist in implementing the plan.
Engagement Opportunities
The Richmond Rising: Community Action Plan was developed for the community, and citizen
engagement played a huge part in the plan’s development and review. Over the course of 12 months,
the Richmond Rising movement was used to garner the input, ideas, concerns, and suggestions of
hundreds of Richmond residents, business owners, and stakeholders. The input and engagement
sessions outlined as a part of the process ensured that the plan reflected the needs and aspirations
of Richmond’s diverse population.
JAN 2019
FEB 2019
MAR 2019
APR 2019
Steering
Committee
Meeting #1
Project Website
Launch and
Marketing
Materials
Data Collection
and Past Plans
Review
Steering
Committee
Meeting #2
6 Stakeholder
Groups
Public Meeting #1
Online Survey
15
JULY 2019MAY 2019
JUN 2019 AUG 2019
SEPT 2019
OCT 2019
NOV 2019
DEC 2019
Steering
Committee
Meeting #3
and Plan
Commission
Update
City Council
Update
Steering
Committee
Meeting #4
Steering Committee
Meeting #5
Sub-area Stakeholder
Meeting
Developer
Round table
Existing Conditions
Review & Comment
Period
Public Meeting #2
Online Survey
Steering
Committee
Meeting #6
Council & Plan
Commission Work
Sessions
Draft Plan Review
Adoption
Process Kick- off
Final Adoption
16
You Spoke. We Listened.
Community engagement provides an opportunity for citizens to participate in the planning process and builds
consensus around the community-wide vision and goals. These opportunities worked to ensure that the community’s
interests are reflected within the plan and that the recommendations will be supported during the plans adoption
and implementation. Through various discussions, online surveys, and public events, a series of key takeaways
were developed.
1. Residents identified parks, education, a vibrant downtown, health and safety, and public arts and culture as
their top five values.
2. Resident’s value the history, culture, and architecture of Richmond.
3. Residents value the unique places such as the Downtown, Depot District, Earlham College, Whitewater Gorge,
and Glen Miller Park.
4. Residents placed a priority on attracting more people, jobs, and businesses to the community.
5. Residents placed a priority on addressing the challenges related to housing and blighted areas.
6. Residents feel Richmond’s geographic location along interstate 70 and affordability give the city a competitive
edge.
7. Residents feel the riverfront is a great development opportunity.
8. Residents identified public art, park and recreational facilities, family activities, entertainment, and
professional housing, such as apartments, as desired amenities.
9. Residents feel the biggest challenges Richmond will face in the next 10 to 15 years are population decline,
“brain drain”, and workforce readiness.
10. The comprehensive plan should prioritize initiatives to help identify where the City should focus their efforts.
11. The comprehensive plan should have a clear, defined vision and an engagement process that speaks to all
demographics.
PUBLIC
ENGAGEMENT
BY THE NUMBERS
6 STEERING COMMITTEE
MEETINGS
2 PLAN COMMISSION
AND CITY COUNCIL
PRESENTATIONS AND
MONTHLY UPDATES
75 STAKEHOLDERS
INVITED TO PARTICIPATE
715 TOTAL PUBLIC
SURVEY RESPONSES
70 PEOPLE ATTENDED
THE PUBLIC MEETINGS
17
18
WHEN PLANNING
FOR A COMMUNITY’S
FUTURE, IT IS
IMPERATIVE TO
START WITH A SOLID
FOUNDATION.
19LAYING THE FOUNDATIONA comprehensive plan needs to account for the community’s past, present, and
future. When planning for a community’s future, it is imperative to start with a
solid foundation. This requires an understanding of the history of the community,
past and ongoing planning efforts, along with past and present demographic and
socio-economic trends. These elements greatly inform and provide direction for the
development of the community’s aspirations and goals for the future. This chapter
serves as the foundation for the recommendations that follow in Chapters 3 and 4.
20
LAYING THE FOUNDATION
20
2006
Richmond Comprehensive Plan
2006
Downtown Strategic Plan
A document that was used as a policy guide for
making informed decisions that affect the community,
the City’s previous comprehensive plan identified
economic development, job creation, physical
appearance, community services, community
resources, and the sense of city identity and pride as
the six most pressing issues during the time the plan
was completed.
2011
Transportation Plan
The plan establishes a vision to “provide a
framework for an integrated multi-modal
transportation system that will guide City
policies and priorities and improve the quality
of life in Richmond.” The framework is one that
centers on the creation of a complete streets
system where transportation planning evolves
becoming less automobile centric.
Created to provide Richmond with a clear understanding of the
downtown’s goals, objectives, and opportunities for inclusion in the 2006
Comprehensive Plan, the strategic plan outlines urban design principles to
guide development. Additionally, the plan establishes several core principles
that can help foster sustainable health and vitality of downtown Richmond
focused on:
• Downtown pedestrian environment and experience,
• Prioritizing development areas
• Downtown as a cultural and entertainment center of the region
• Enhanced connectivity through infill development and transportation
options
• Whitewater Gorge as Richmond’s top natural asset
• Importance of historic structures preservation.
2009
Parks and Recreation Master Plan
A guide for providing parks and recreation
in and around Richmond, this document’s
action plan outlines strategies for five
categories including facilities, services,
markets, community, and stewardship.
Richmond has a long and rich tradition of community planning. This timeline serves as a graphic representation of the efforts put forth by the community to guide,
and prepare for, future development and redevelopment opportunities. While each plan was thoroughly reviewed for the wealth of knowledge it offers, this
timeline serves to highlight the overarching purpose of each document.
2013
Stellar Strategic Investment Plan
A planning process that resulted in earning
the Stellar Communities designation in 2013.
With a mission statement to “Positively
enhance the quality of life for the entire
region by making improvements in the
district, leveraging strategic partnerships,
and creating gateways to surrounding
emerging districts for sustainable quality
living and economic vitality.” The strategic
investment plan outlines 10 projects ranging
from the creation of Elstro Plaza to facade
improvements.
2005
2121
2020
2015
Bike and Pedestrian Master Plan
This plan builds upon the success of the
Cardinal Greenway and aims to provide a
complete system of bicycle and pedestrian
facilities. The purpose is two-fold: first to further
non-vehicular transportation and recreation,
and second to improve the local quality of life
offered by the City of Richmond
2016
Regional Economic Development Plan
This document aims to “build better places to live, work, and play through collaboration,
planning, and cooperation [in the use of] public and private funding.” The plan identifies six
goals relating to:
• Improving the climate for the Advanced Materials Manufacturing cluster
• Recognizing the region’s deep agricultural heritage
• Recognizing the importance of healthcare as both a regional employer and as a
prerequisite for population growth
• Addressing the need for infrastructure improvements to accomplish the other goals in
the plan
• Understanding that the quality of place determines whether current residents will stay
and if new residents will move into the area
• Recognizing the importance of building trust, engaging in meaningful communication,
and collaborating fully.
2018
Eastern Indiana Transforms
Regional Economic Development
Plan
Submitted as part of the Eastern Indiana Stellar
application, the Stronger Economies Together (SET)
plan outlines six goals to transform the region through
collaboration, quality of place, workforce development,
infrastructure, healthcare, and agriculture. Additionally,
there are eight proposed projects included in the plan
chosen because of their connection to attraction,
retention, and development of talent. One of the proposed
projects, Townsend Townhomes, was anticipated to be
located in Richmond.
2019
Forward Wayne County
Although not a planning document, Forward Wayne
County is a countywide effort to align community
resources, foster a vibrant economy, and promote
prosperity in Wayne County, Indiana. This initiative
focuses on providing support and resources for two
key strategic pillars, Our People and Our Community.
Furthermore, there are four key strategic priorities
including increasing median income, increasing
population, decreasing people living in poverty, and
increasing educational attainment levels.
22
PLANNING CONTEXT
As a key component to the Richmond Rising: Community Action Plan an existing
conditions report was compiled as a standalone document during this planning process.
The Richmond Rising: Existing Conditions Report served as an interim deliverable that
provided an inventory of Richmond’s existing demographic, socioeconomic and market
condition as well as an inventory of the city’s built infrastructure, amenities and natural
features. Using both data and public input, the document helped identify trends and
inform the project team of any challenges the community is or will be facing. Through
the completion of Richmond Rising: Existing Conditions Report, and public engagement,
six predominant challenges related to the following items were identified including:
• Declining population
• Quality of housing
• Lack of housing options
• Multimodal transportation
• Communication and collaboration
• Social services
These challenges are the primary conclusion statements from the Richmond Rising:
Existing Conditions Report. This Planning Context section is intended to dive deeper into
each of the challenges by providing a descriptive summary, illustrating supporting data,
and outlining why finding a solution, or a series of strategies to mitigate the challenge,
is important to Richmond’s success moving forward. All data was obtained from ESRI
Business Analyst and the U.S. Census Bureau, unless otherwise noted.
Key challenges
Richmond strives to build upon their existing community assets and respond to their
key challenges. The following six challenges serve as the context that informed the
development of the vision, goals, and recommendations that will follow.
Interested in learning more about the existing conditions data collection and analysis?
Refer to the Richmond Rising: Existing Condition Report for the full summary in Appendix. See page 113.
SIX KEY CHALLENGES
LAYING THE FOUNDATION
DECLINING POPULATION
Richmond’s population has been decreasing for the last several years and is
projected to experience a 2 percent decrease in total population over the next
five years1. Additionally, Richmond’s population is getting older, with a median age
that is two years older compared to the state of Indiana. This challenge is further
complicated by a concept known as “brain drain”, meaning educated, skilled
individuals are migrating from a less developed community to a more developed
community. This population decline could be directly related to the quality of life
currently offered in Richmond. Quality of life takes into account an individual’s
satisfaction on a variety of aspects including housing, employment, and amenities.
See Page 24.
1 U.S. Census Bureau, Census 2010 Summary File 1. Esri forecasts for 2018 and 2023 Esri converted Census 2000 data into 2010
geography. Community Profile Report.
QUALITY OF HOUSING STOCK
Nearly 70 percent of the current housing stock in Richmond was built before
1970, meaning the units were constructed before modern building codes went
into effect1. While these older structures often offer unique architectural character
and contribute to the City’s rich historical districts, old structures pose a series of
challenges to a community’s neighborhoods. Older structures generally cost more
to improve and maintain and require a population with expendable income to
invest and reinvest in these areas. The combination of aging structures, the high
percentage of renter-occupied units, and increasing vacancy rates all contribute to
the overall quality of housing currently offered in Richmond. See Page 26.
1 U.S. Census Bureau, 2012-2016 American Community Survey. Housing Summary Profile
23
COMMUNICATION AND COLLABORATION
Providing streamlined processes, transparent decision-making, and efficient use
of City resources are all key components to any successful community. Providing
this level of transparency between City leaders and the public builds trust and
collaboration. A common concern expressed during the engagement phase
revealed that citizens feel that they were not part of the decision-making process.
The City should continue working to improve communication and collaboration
among its citizens, organizations, and various bodies of government. See Page
32.
INFORMED THE DEVELOPMENT OF THIS PLAN.
LACK OF HOUSING OPTIONS
In addition to challenges related to the quality of housing, Richmond lacks variety
in housing types and price points. The majority of the city’s housing stock is
represented by single-family, detached homes, with a median value of $92,0001.
A variety of housing types, including apartments and condominiums, is needed
to attract and retain young professionals, first-time homebuyers, and senior
adults. Housing diversity is also a critical component to allowing the city’s senior
population to age in place. See Page 28.
1 U.S. Census Bureau, Census 2010 Summary File 1. Housing Profile.
MULTI-MODAL TRANSPORTATION
With the Cardinal Greenway, several trails along the river, and the most recent
addition of the bicycle and pedestrian safety enhancements, commonly referred
to as the Loop, Richmond has been making strides to improve pedestrian’s
and bicyclist’s connectivity but much more remains to be done. A popular
response during public engagement opportunities reveal gaps in connectivity for
pedestrians still exist. Addressing this challenge will provide alternative modes
of transportation and recreational amenities. Furthermore, citizens expressed the
need for public transit improvements that offer a more user-friendly, dependable
and convenient service. Young professionals and senior adults find these
alternative modes of transportation are both desirable and sometimes even
essential for commuting. See Page 30.
SOCIAL SERVICES
The City of Richmond, as the only urban center in East Central Indiana, is the
primary provider of social services for a rather large region consisting of nearly
85,000 people1. This spatial pattern creates challenges for both providers and
clients. For the providers, resources may be limited relative to the service area,
because municipalities outside of Richmond do not contribute to these services.
For clients not located in Richmond, services are inaccessible if transportation is
not available, and a need for ongoing services may even necessitate a change in
residence. See Page 34.
1 Source: U.S. Census Bureau, Census 2010 Summary File 1. Esri forecasts for 2018 and 2023 Esri converted Census 2000 data
into 2010 geography. East Central Indiana Community Profile.
2424
In 2018, Richmond’s total population was estimated at over 36,000 people, making
it the largest city in Wayne County. Richmond is expected to experience a 2 percent
decrease in population over the next five years, which is slightly less than the
expected decrease of 2.25 percent for Wayne County. Additionally, the population
that remains located in Richmond is growing older. Today, the median age for
residents in Richmond is 40 years old and has been slowly increasing since 2000.
Richmond’s population pyramid illustrates the age structure of the community. It
reveals that a significant portion of the population is between the ages of 20-24. It
can be assumed that this age group stands out because of the number of higher-
education institutions located in Richmond. An important component to note is
that the category representing people between the ages of 25-29 is much smaller,
meaning that college-educated individuals are leaving Richmond. This concept is
known as “brain drain”.
To further complicate this challenge, the population pyramid shows that Richmond
lacks residents between the ages of 40 – 50. This could be related to the desire for
advancement within the workplace and limited opportunities to do so in Richmond
necessitating relocation out of the community for these opportunities
The final observation related to the age structure of Richmond’s population stems
from the aging population. Starting at age 60, the percentage of aging adults
starts to drop off. It is likely because of the lack of amenities this age group needs,
including diverse housing types, alternative modes of transportation, and other
community services.
CHALLENGE #1
Richmond’s population is declining and growing
older. 39,236
36,918
36,191
35,465
33,000
34,000
35,000
36,000
37,000
38,000
39,000
40,000
2000 2010 2018 2023
Population Change
Richmond, IN
-10.00%-8.00%-6.00%-4.00%-2.00%0.00%2.00%4.00%6.00%8.00%10.00%
Under 5 years
5 to 9 years
10 to 14 years
15 to 19 years
20 to 24 years
25 to 29 years
30 to 34 years
35 to 39 years
40 to 44 years
45 to 49 years
50 to 54 years
55 to 59 years
60 to 64 years
65 to 69 years
70 to 74 years
75 to 79 years
80 to 84 years
85 years and over
2018 Age Structure
Male Female
Source: U.S. Census Bureau, Census 2010 Summary File 1. Esri forecasts for 2018 and 2023 Esri converted Census 2000 data into 2010
geography. Community Profile Report
Source: U.S. Census Bureau, Census 2010 Summary File 1. Esri forecasts for 2018 and 2023. Age by Sex Report.
2525
Fortunately, these amenities and services that are necessary for the elderly to
age in place are attractive to millennial’s too. By catering to one generation, a
community can attract another generation.
Overall, Richmond is experiencing a migration of its workforce to nearby
communities that offer higher wages and standards of living such as Indianapolis,
Dayton, and Cincinnati. Although money is an important factor, improving the
quality of life is a significant contributing factor that can be done in various
ways. Quality of life observes an individual’s satisfaction on a variety of elements
ranging from access to goods and services, personal health and wellness, social
integration, sense of safety, job security, opportunities for learning, access to
unique experiences, and convenient amenities.
Improving the quality of life offered in Richmond starts by addressing the
fundamental needs of a resident, and the two most popular things that bring an
individual to a community are housing and employment. From there, the City
can focus on the elements that supplement the necessities such as parks and
recreational amenities and entertainment options.
To attract and retain residents and workers, Richmond must GROW….
• A community that provides a quality of life that attracts and retains young
professionals to stay in Richmond after completing their education.
• A community that supports local residents looking to advance.
• A community that accommodates a diverse selection of housing,
transportation, recreation, and human services for people in all stages of life.
2018 Population
36,191
WHAT IS THE BIGGEST CHALLENGE
RICHMOND WILL FACE IN THE NEXT 10-15 YEARS?
“Brain drain- losing its ambitious, driven, and smart people to
cities that provide more.”
"Remaining competitive with nearby large communities. We
are likely going to continue to lose population if we don't take
actions to provide more amenities to our population."
2018 - 2023
Total Population
Percentage Change
2%
Residents between
the ages of 20 - 24
2,750
Residents between
the ages of 25 - 29
2,338
Community Survey Results
26
Nearly 70 percent of the current housing stock in Richmond was built before 1970,
meaning the units were constructed before modern building codes went into effect.
While these older structures often offer unique architectural character and contribute
to the city’s rich historical districts, old structures pose a series of challenges to a
community’s neighborhoods. Older structures generally cost more to improve and
maintain and require a population with expendable income to invest and reinvest in
these areas.
Richmond adopted its first version of building codes in 1966, with Wayne County
following with its own later in 1976. These codes were adopted to ensure that all
housing met standards to ensure a clean, safe, and healthy living environment. As most
of Richmond’s housing was built before this time, the structures were likely not built
to this standard. This means if any additions or renovations occur to the property, the
entire property will then have to be brought up to code, often an expensive prospect.
As such, owners will often feel reinvesting in their property is simply not worth the cost,
leading to neglect and degradation.
Another symptom of Richmond’s housing quality challenges stems from its abnormally
large rental market. As of 2018, nearly 35 percent of Richmond’s existing housing stock
was renter occupied. This does not suggest that rental units aren’t a quality housing
type; instead, the challenge lies in the public perception of absentee landlords. In
some rental situations, the responsibility for maintenance and general upkeep of the
property is shuffled around. Landlords are likely not willing to invest a lot of money into
a property because they aren’t living in it. On the other hand, some renters may not
follow through with their responsibility to report problems or respect the property or
structure. Quality rental housing is a result of both parties making an effort to ensure
the unit is maintained at a livable standard.
CHALLENGE #2
Richmond is facing housing challenges related
to aging structures, a high percentage of renter-
occupied units, and increasing vacancy rates.
9,663 8,514 8,852 8,820
6,646
6,626 5,961 5,683
1,364 2,551 2,871 3,230
0
2,000
4,000
6,000
8,000
10,000
12,000
14,000
16,000
18,000
20,000
2000 2010 2018 2023Number of Housing Units in RichmondYear
Housing Occupancy
Owner Renter Vacant
Source: U.S. Census Bureau, Census 2010 Summary File 1. Esri forecasts for 2018 and 2023 Esri converted Census 2000 data into 2010
geography. Community Profile Report
27
Another common housing challenge is a high vacancy rate. Today, Richmond’s
vacancy rate is 16 percent and is expected to continue increasing. Additionally, when
compared to Wayne County, this vacancy rate is 2 percent higher than the county
with 14 percent of housing units being vacant. This many vacant units can generate
a negative perception of an area. Furthermore, if a structure sits vacant for a long
period, the house can fall into disrepair. In these instances, it can become costly and
undesirable for potential owners to want to invest in that property.
Code enforcement is an important factor to consider related to both aging housing
units and rental properties. The City’s ability to enforce zoning regulations and
building codes plays a major role in the quality of housing units and overall perception
of each neighborhood. Recent efforts include a higher focus on enforcing code and
code violations and working to implement a landlord registry. As mentioned in the
demographic challenge summary, housing plays a major role in Richmond’s ability to
offer a higher quality of life for future residents and employers.
In order to provide safe, high-quality housing units, Richmond must GROW….
• A community that enforces a higher standard for condition and design of
existing housing structures and new developments to improve the quality and
character of Richmond neighborhoods.
• A community that encourages residential infill and home renovation projects.
• A community that maintains an updated landlord registry and explores ways to
hold property owners accountable for regular maintenance.
• A community that focuses on renovating and filling vacant and abandoned
properties.
Total Housing Units
Richmond's first
Housing Code
(Ord. 2231-1996)
1966
17,684
Owner Renter Vacant
50%34%16%
70%
Built before
1970
Community Survey Results
I WANT TO ELIMINATE...
“Blight, boarded up businesses, underutilized store fronts."
"Substandard housing associated with lack of management
and maintenance of rental properties."
"Slum lords who allow properties to look terrible and provide
unsafe housing for low income families."
28
A vibrant, economically successful community requires diversity, meaning variety
in different elements that make up a community including demographics, housing
types, amenities, jobs, and much more. The 2012-2016 American Community Survey
reveals that nearly 65 percent of Richmond’s existing housing stock was single-family,
detached homes with a median value of $92,590. Additionally, of nearly 9,000 owner-
occupied units, less than 1,000 units were valued at $200,000 or more.
The remaining 35 percent of the housing stock is made up of multi-family units with a
median contract rent of $458. While some may perceive low rent as a good thing, it can
also speak to the condition and quality of the units. It can be assumed for multi-family
units in Indiana, a higher quality “luxury” unit may have a starting rent price of $800-
$1250 per month. Richmond has less than 300 units available within this price range.
The lack of variety in housing types and price points could be a determining factor
in whether the population increases or decreases over time. Additionally, the age
structure of Richmond’s population and the available housing types with a community
can be related. Although not always certain, common themes can be identified for the
desired housing type of each age group. Middle-aged residents may look at long-term
stability and desire large homes with many bedrooms for children. Retirees and empty
nesters may look to downsize later in life, finding their own retirement home, moving
for the sake of convenience, or possibly joining their children’s households. A variety of
housing types, including apartments and condominiums, is needed to attract and retain
young professionals, first-time homebuyers, and senior adults. Housing diversity is also
a critical component in allowing the city’s senior population to age in place.
There is even more diversity when you consider the other factors that feed into where
a person lives such as income and employment. Each individual has their own desires,
needs, priorities, and preferences when choosing their home. If they cannot find a
home that meets their criteria in Richmond, they may look to live elsewhere.
CHALLENGE #3
Richmond lacks variety in housing types and price
points.
1,104
3,900
2,058
849
401
179
274
65
21
0 500 1,000 1,500 2,000 2,500 3,000 3,500 4,000 4,500
<$50,000
$50,000-$99,999
$100,000-$149,999
$150,000-$199
$200,000-$249,999
$250,000-$299,999
$300,000-$399,999
$400,000-$499,999
$500,000+
Number of Housing UnitsDollars 2018 Home Values
Number
INTO
WAYNE
OUT OF
WAYNE
2015
COMMUTING
DATA
Source: U.S. Census Bureau, Census 2010 Summary File 1. Housing Profile.
Source: STATS Indiana Commuting Profile Tax Year 2015
29
It appears Richmond is facing this challenge. While the jobs are here, the desired
housing is not. As of 2015, nearly 5,000 workers worked in Wayne County but lived
elsewhere. Increasing the variety of housing types within Richmond could help draw
some of these workers living outside of the county into Richmond.
In order to meet the housing needs of both current and future residents, Richmond
must GROW…
• A community that accommodates a wide range of ages and incomes by
providing a wide variety of high-quality housing options.
• A community that encourages aging in place by offering the necessary
services, amenities, and housing types.
• A community that seeks out areas for new mixed-use development and
encourages compact, pedestrian-friendly developments.
65%
Single-family
Homes Median Home Value
$92,590
35%
Multi-family
Housing Units Median Contract Rent
$458
Community Survey Results
ADEQUATE HOUSING MEANS....
"Accessible to all, clean, safe, and reasonably priced."
"Variety of housing options to meet all needs from low to high
income, singles to families and retirees."
"Getting developers to invest in modern housing and building
quality neighborhoods that attract and keep the 18 - 45 year
olds in Richmond."
"The ability to find an apartment or condo that is affordable
without being low income based."
Source: U.S. Census Bureau, 2012-2016 American Community Survey. Housing Summary Profile
30
With the Cardinal Greenway, several trails along the river, and the most recent addition
of the bicycle loop, Richmond has been taking strides to improve connectivity but there
is still more to do. A popular response during public engagement opportunities reveal
gaps in connectivity for pedestrians still exist. Furthermore, citizens expressed the
need for public transit improvements that offer a more user-friendly, dependable and
convenient service.
In addition to public input, data related to vehicle ownership in Richmond confirms the
need for improved connectivity and enhanced services. Nearly 16 percent of occupied
housing units in Richmond do not own a vehicle at all1. Furthermore, 40 percent of
households only own one vehicle. This could be problematic if there are two working
adults in the household with only one vehicle.
The challenges related to connectivity and services stem from the existing
transportation systems. When connectivity gaps exist and the system isn’t easy to
understand or operate, people will likely choose not to use the system or facilities
that are available. Identifying where the gaps are and working to improve services
with technology enhancements are essential to developing a working and sustainable
multimodal transportation system.
A multimodal transportation system works to combine both motorized and non-
motorized forms of transportation. Not only does it consider the roadway network for
vehicles and bus transit but also takes into account the pedestrian network made up of
sidewalks, trails, and bike facilities. Many communities are shifting toward multimodal
transportation systems because it can help to relieve congestion and improve air
quality by offering alternatives to driving. Additionally, non-motorized transportation
infrastructure helps to enhance connectivity and improve safety for pedestrians. It also
encourages a healthy lifestyle and serves as a community amenity for recreation and
leisure. These systems of movement provide excellent opportunities for people to be
physically active.
1 U.S. Census Bureau, 2012-2016 American Community Survey. Housing Summary Profile
CHALLENGE #4
Richmond’s transportation network is inadequate at
providing connectivity and user-friendly services.
31
Both young professionals and senior adults find these alternative modes of
transportation desirable and sometimes even essential for commuting. Therefore,
offering a multimodal transportation network addresses the needs of individuals
without a vehicle and the inability to drive while providing a recreational amenity that
will help attract and retain the younger generation.
In order to provide a multimodal transportation network, Richmond must CONNECT…
• Residents to jobs, services, and amenities.
• Residents to regional trail segments, unique parks, and natural features.
• Residents to key destinations by providing wayfinding signage
• Residents to safe and maintained infrastructure.
• Residents to their desired destination in a reduced amount of time.
Community Survey Results
I WANT TO IMPROVE...
"Our walkability and bikeability in Richmond."
"The sidewalks and the capacity for people to walk on
sidewalks instead of street."
"Communities and neighborhoods need to be more
connected socially and physically. Easier for the pedestrian to
travel around."
MULTI-MODAL BENEFITS....
Relieves congestion
Improves air quality
Encourages a healthy, active lifestyle
Improves connectivity
Serves as a recreational amenity
of occupied housing
units in Richmond do
not own a vehicle at all.
16%40%
of families only
have 1 vehicle
32
Providing streamlined processes, transparent decision-making, and efficient use of City
resources are all key components to any successful community. Providing this level of
transparency between City leaders and the public builds trust and collaboration and
creates a shared vision and sense of community. A common concern expressed during
the engagement phase of the Richmond Rising process revealed that citizens feel that
they aren't always included in the decision-making process.
Each of the components listed above originate under much broader terms such as
communication and collaboration. Although defined differently, the two words are
directly related. Simply put, communication is defined as sharing information while
collaboration requires working together to create something. Within a community,
there can be several individuals, businesses, organizations, and levels of government
working toward a relatively similar goal. At the same time, these individuals or
organizations may have conflicting interests about something else. Additionally, to
further complicate this challenge, community leaders are constantly coming and going,
each bringing their own methods and priorities in how they approach issues. Because
of this, the City of Richmond should always be working to improve communication and
collaboration among its citizens, organizations, and various bodies of government.
The challenges around communication and collaboration are not unique to Richmond;
almost all communities face similar problems. Several concerns were expressed during
the engagement phase that helped identify this topic as a top challenge such as:
• Citizens feeling that they aren't always included in the decision-making process.
• Information and resources weren’t always being shared, leading to duplicate
and/or conflicting efforts.
• Existing government processes and procedures aren’t efficient for residents,
businesses, and/or developers.
CHALLENGE #5
Richmond should always be working to improve
communication and collaboration among its citizens,
organizations, and various bodies of government.
33
In recognition of this challenge, the City Richmond has been working to improve
transparency and streamlining processes. The most recent effort involves
transitioning from a paper application process for permits to an online portal.
Whether these are real or perceived challenges within Richmond, it is essential for
the City to have a good communications strategy because it will aid in relationship
building and establish trust among various individuals, organization, and levels of
government. The City has the opportunity to lead by example. Sharing timely updates
about upcoming events, current initiatives, new programs or policies, celebrations
of success, or changes in leadership would likely jumpstart improvements in
communication and collaboration for the rest of the community.
In order to improve communication and collaboration, Richmond must CELEBRATE….
• Progress and accomplishments by sharing regular updates with the community.
• Various organizations and entities working together through coordination of
efforts and efficient use of resources.
• Modern technology by using digital, online systems.
Community Survey Results
I WANT TO IMPROVE...
"Communication between government and citizens."
"City-wide Interdepartmental Efficiency."
"Communication and input from citizens. The ability to
reach out into the worst of the worst neighborhoods and
develop trust. Inspiring more people to get involved and
feel that they can make a difference."
WHAT DO YOU WISH LOCAL GOVERNMENT
VALUED?
"I wish that Richmond's city government could bridge
the gap of communication between their departments. It
seems that so many are in "silos" with their departments."
"Cooperation between different organizations with the
government and student involvement in the
process of development."
WE NEED TO DO SOMETHING ABOUT...
"Bringing worker bees and visionaries together, form a
plan, and have those who support these plans to finish."
"The negative attitude of residents about the community
engaging with everyone in a positive way."
34
Social services are programs or services offered by either the government or
sometimes local organizations for the benefit of the larger community. These programs
are intended to aid disadvantaged, distressed, or vulnerable persons or groups. While
often a loss for a community’s finances, social service programs such as these provide
an important safety net to residents. Types of assistance may include, but are not
limited to food, housing, education, drug rehabilitation services, transportation, and
disability mental health support.
It is a well-researched characteristic of modern urban areas that disadvantaged
populations tend to be concentrated in inner city areas. This “vicious cycle” is
apparent, where public services locate in central cities in order to be closer to their
clients, and new clients move to the central city to access the services that they cannot
receive elsewhere; meanwhile, affluent households that have the ability to do so move
into further-flung neighborhoods to avoid contact with disadvantaged populations and
the disinvestment that can result. This cycle represents a double-setback for the inner
city hosting these services – a lowered ability to raise revenues from a declining tax
base, combined with increased outlays resulting from rising social service demand.
The City of Richmond, as the only urban center in east Central Indiana, is the primary
provider of social services for a rather large region. If we define a rough “market area’
for these services as a circle 15 miles around the City (the central areas for Muncie,
IN, Dayton, OH, and Indianapolis IN are respectively 36, 40, and 70 miles away), then
Richmond serves as a primary social service provider for more than 85,000 people.
Focusing in on Wayne County reinforces this finding, as the City houses the County’s
only two homeless shelters, and 11 of its 13 addiction and recovery facilities.
This spatial pattern creates challenges for both providers and clients. For the providers,
resources may be limited relative to the service area, because municipalities outside
CHALLENGE #6
Richmond, as the only urban center in East Central
Indiana, is the primary provider of social services for
a rather large region.
KENTUCKY
Regional Context Map
35
of Richmond do not contribute to these services. For clients not located in Richmond,
services are inaccessible if transportation is not available, and a need for ongoing
services may even necessitate a change in residence.
In order to provide a better-funded and more accessible safety net for persons in
need, Richmond must CONNECT…
• Service agencies with a broader net of potential funding sources, potentially
including Wayne County and surrounding municipalities.
• Potential clients with needed services.
• Existing clients who need housing with quality options.
• Former clients with ongoing support services that help them integrate into the
community.
Community Survey Results
I WANT TO IMPROVE...
"Access to assistance for substance abusers."
"The quality of programs offered. Free is nice, but free
doesn’t give you the ability to expand and grow."
"Mental health care and addiction recovery programs."
"Access to technical training."
WE NEED MORE...
"Child Care."
"Treatment Centers."
"Affordable housing and access to mental health care."
"Low income housing and support for those on disability,
family housing, more partnerships & collaboration
between services."
WE NEED TO DO SOMETHING ABOUT...
"Providing addiction services and family support.
Crumbling neighborhoods and home repairs."
"Uplifting the quality of life of citizens by investing in our
social infrastructure."
36
LAYING THE FOUNDATION
GROWGROW
CONNECTCONNECT
PROTECTPROTECT
CELEBRATECELEBRATE
GROWProvide a variety of coordinated land uses to meet the needs of a diverse and
sustainable community with thriving neighborhoods, business areas, industrial parks,
and civic places.
Develop and maintain clean, safe neighborhoods that offer diverse housing types to
meet the needs of current and future residents.
Generate a thriving economy through diversifying the City’s economic base and
responding to industry needs by providing opportunities for lifelong learning and
workforce development services and programs.
Continue meeting the changing needs of the City's residents through public safety, and
support health, education, and religious institutions while promoting safe and healthy
lifestyles. CONNECTExpand Richmond’s motorized and non-motorized network to better facilitate local
vehicular and pedestrian movement, while at the same time, minimizing the impact of
regional traffic through the city.
Provide efficient public services and utilities to foster economic development while
planning for future demand.
Enhance Richmond’s parks and recreation system by providing high-quality, diversified
park amenities including trail connections, recreational facilities, and programming
experiences for all users.PROTECTConserve resources and protect Richmond’s natural environment by guiding growth and
redevelopment with an overarching philosophy of sustainability.CELEBRATEEstablish a brand, identity, and character that is authentic to Richmond and generates a
sense of place for its residents, visitors, and workforce.
Improve government efficiencies through the use of modern technology by delivering
consistent enforcement processes, transparent and frequent communication, and
opportunities for collaboration among entities, agencies, and/or organizations.
GOAL STATEMENTS
In order to transition from Phase 1: Information
Gathering to Phase 2: Ideas and Strategy Development,
the community and project team has to have a
solid understanding of the desired outcome for the
future of Richmond. Through reviewing the 2006
Comprehensive Plan, conducting an analysis of
Richmond's existing conditions, identifying the key
challenges, and summarizing public engagement input
10 goal statements were created.
Goals are intended to be a statement of desired results
which a community commits to achieve. The goal
topics for the Richmond Rising: Community Action Plan
include:
• Land use and development;
• Housing and Neighborhoods;
• Workforce and Economic Development;
• Community Services;
• Transportation;
• Utilities;
• Parks and Recreation;
• Environment and Sustainability;
• Community Identity; and
• Administrative Processes and Procedures.
37
38
EVERYONE WANTS
RICHMOND
TO THRIVE.
39
To stay competitive as both a place to live and a place to work, the City of Richmond
will need to rise to meet its new potential. As a city rich in history as well as natural and
cultural assets, Richmond has a strong foundation in place that can be used to build the
Richmond of the 21st century.
Richmond is rich with history and culture. The city boasts architectural character and
history through its 10 historic sites and 6 historic districts. The city is home to six
higher educational institutions each with their own unique programming and focus
areas. In addition to built assets, the City is embracing the natural features found in
the community. The Whitewater River, the Middlefork Reservoir, and the Whitewater
Gorge Park are unique to Richmond and offer opportunities unavailable to many cities
across the Midwest. Above all else, Richmond’s residents, stakeholders, and leaders are
possibly one of the city’s biggest assets. Richmond residents value the assets that exist,
can see the City’s potential, and are ready to roll up their sleeves to help Richmond rise
to its potential.
While rich with resources, Richmond is also facing some real challenges. Population
decline and lack of both housing diversity and quality are limiting the City’s ability to
become a residential destination. Gaps in the transportation network, especially related
to alternative modes of transportation, limit the options for residents to move in and
around the community. A perceived lack of communication and transparency has left
residents feeling like they aren't part of the decision-making process. By acknowledging
and understanding these challenges the City of Richmond can continue to leverage and
build upon its assets to address its problems.
Richmond Rising: A Community Action Plan is intended to serve as a foundation for the
City’s future planning efforts surrounding the outlined community challenges. Richmond
Rising is intended to guide land use and development decisions; inform subsequent
plans, policies, regulations, and budgeting decisions; and provide terminology to use
throughout future efforts. Richmond Rising: A Community Action Plan is much more than
a statement of the City’s overall vision and policy direction. It also provides direction on a
variety of strategic investment areas and critical path strategies necessary for the City to
move forward toward success.
The City of Richmond is rising to become a VIBRANT community where there are
opportunities for EDUCATION, ENTERTAINMENT, and EMPLOYMENT. Richmond’s
GROWING quality of life stems from its DIVERSE people, SUPPORTIVE environment,
WELCOMING neighborhoods, and CULTURAL amenities.ESTABLISHING THE FRAMEWORK
40
Richmond Rising: A Community Action Plan is the overarching plan to guide the
community toward its future vision. The City of Richmond’s vision is intentionally broad
and encompasses the needs of residents, employers, employees, and visitors alike.
To meet the current and future needs of the diverse audience, the guidance portion
of this plan needs to be just as comprehensive. To account for the needs of a variety
of user groups within the community, while also guiding reinvestment, refinement,
and revitalization within the Richmond community, this Richmond Rising: Community
Action Plan is organized around a fundamental theme of building. Building, or even
rebuilding, does not require a fresh start, or a blank slate. Instead, building can be
a state of continued improvement, allowing a focus on strengthening foundational
elements so that new, innovative additions can be supported. Improving upon a city
is no different than building a structure. This Richmond Rising: Community Action Plan
outlines a series of recommendations to ensure that the city can rise to any occasion.
To provide the City with useable tools for both policy and physical improvement
decisions, the recommendations are outlined in two, separate, yet complementary
framework plans.
Regulatory Framework
The updated regulatory framework will inform the development review and approval
process for the City of Richmond and will be the basis to guide development of the
code update. The regulatory framework outlines the City’s goals and policy objectives
related to GROWTH, CONNECTIVITY, PROTECTION, and CELEBRATION. The regulatory
framework is intended to be the City’s primary planning and development tool.
Reinvestment and Redevelopment Framework
The reinvestment and redevelopment framework is intended to build upon the goals
and policy objectives contained in the regulatory framework. The reinvestment and
redevelopment framework outlines a series of focused planning efforts and physical
improvements necessary to GROW, CONNECT, PROTECT, and CELEBRATE the City’s
core opportunities areas. The reinvestment and redevelopment framework is intended
to be a primary planning tool for the City and should be used to identify and prioritize
future planning efforts and capital improvements. Additionally, the reinvestment
and redevelopment framework should be used as a complementary planning and
development tool on a day-to-day basis.
ESTABLISHING THE FRAMEWORK
41
To further understand how the City of Richmond and its strategic partners can GROW,
CONNECT, PROTECT and CELEBRATE the city, the regulatory framework focuses on
integrating land use, transportation, and placemaking qualities into a series of guiding
goals and policy statements as well as programming and project recommendations.
These guiding goals, policy statements, and physical improvement recommendations
are aspirational, yet achievable targets to guide the community toward its future
goals. They were created using a variety of data and input including past planning
documents, conclusions from the Existing Conditions Document ( See the Appendix,
page 113), as well as input from the public outreach phases, including steering
committee meetings, stakeholder discussions, community surveys, and public
workshops.
The following pages are intended to be a comprehensive set of steps to guide
GROWTH, CONNECTIVITY, PROTECTION, and CELEBRATION efforts throughout
Richmond. The information is intended to be used by City of Richmond leaders and
staff to review private development, guide City investments, and plan for both City-
and community-led initiatives. Each two-page spread focuses on a key topic and
outlines the City’s primary goal for the future, along with guiding policies that can
be used to guide and direct private investment. The two-page spread also includes
a series of project and programming recommendations. These are intended to be
tangible projects that will contribute to achieving the identified goal statement(s).
The program and project recommendations include a preliminary priority ranking as
identified by the Richmond Rising Steering Committee, community leaders, and the
general public. Projects deemed a high priority, with an asterisk, are further outlined
within Chapter 4: Following the Blueprint.
REGULATORY FRAMEWORK
Richmond Rising: A Community Action Plan’s regulatory framework serves as a foundation for the City’s future planning efforts; informing subsequent plans, policies, regulations,
and budgeting decisions; and providing terminology to use throughout those efforts. The Richmond Rising regulatory framework focuses on four key planning elements:
GROW
Richmond
CONNECT
Richmond
PROTECT
Richmond
CELEBRATE
Richmond
4242
ESTABLISHING THE FRAMEWORK
42
PRIMARY OBJECTIVES
1. Use strategic and planned development to guide
growth.
2. Encourage development in the city’s urban core
areas such as downtown, opportunity zones,
special districts, and along primary thoroughfares
rather than the city’s outer edges.
3. Protect and conserve Richmond’s cultural,
architectural, and agricultural heritage while also
encouraging growth.
4. Promote the reuse and redevelopment of existing
sites and structures throughout Richmond to
encourage an efficient use of resources and to
foster revitalization.
5. Support commercial development and
redevelopment in established commercial
districts.
6. Improve the City’s collective ability to
deliver attractive sites for development and
redevelopment.
7. Protect and conserve the region’s environmental
resources by encouraging innovative development
solutions in the long term.
POLICY STATEMENTS
1. Focus new growth within strategic locations
that align with the City’s economic development
strategies and/or initiatives.
2. Promote revitalization and residential infill within
current boundaries of infrastructure and urbanized
areas.
3. Allow for developments that are compact
with convenient access to jobs, services, and
amenities, while limiting those that are not.
4. Support changes to the City’s Unified
Development Ordinance to encourage
development and redevelopment in key areas, as
identified on the future land use map.
5. Consider strategically annex new land outside
of current corporate boundaries in areas of
planned growth such as Spring Grove, the
Midwest Industrial Park area, and residential area
surrounding the intersection of US 40 and S Round
Barn Road.
6. Align economic development tools/practices
to key areas such as existing TIF districts to
incentivize activity in overlay districts and strategic
areas
7. Promote open space preservation and the
development of green spaces within the identified
Priority Investment Opportunity Districts and
within underserved areas of the community.
42
GROW
Richmond’s
Built Environment
Richmond’s built environment features nearly 602
acres of commercially developed land and over time
these areas have been focused on auto-oriented,
auto-accommodating development within areas outside
of Richmond’s urban core. To GROW Richmond’s built
environment, the City will need to achieve a more
efficient use of the built environment, focusing on
strategic areas and the inclusion of well-designed
public spaces and greater conservation of land and
natural resources.
PRIMARY GOALS
Land Use and Development
Provide a variety of coordinated land uses to meet the
needs of a diverse and sustainable community with
thriving neighborhoods, business areas, industrial
parks, and civic places.
434343
8. Minimize conflicts between new development
and natural or open space areas by encouraging
the development of appropriate open spaces,
landscape buffers, and architectural scale
transitions.
9. Support and promote continued agricultural uses
by discouraging the extension of City services into
agricultural areas within the two-mile fringe.
10. Identify and preserve historically significant areas
or structures.
11. Encourage new and diverse anchor institutions for
people to experience downtown during morning,
afternoon and evening hours.
12. Promote the use of Green Building Technology in
new building developments and building reuse
strategies.
13. Promote appropriate density/intensity of
development to ensure future development is
sustainable.
PROGRAM AND PROJECT RECOMMENDATIONS
Program or Project Priority
L M H
Plan for revitalization and redevelopment by completing sub-area plans for Priority Investment Opportunity
Districts. (See pages 72-89)*
Provide development incentives to encourage redevelopment in the City’s strategic growth areas including
but not limited to the Priority Investment Opportunity Districts. (See pages 72-89)*
Evaluate the parking demand for both residents and businesses in downtown Richmond and the Depot
District and develop a long-term parking management plan.
Explore implementation and funding options for parking in downtown Richmond and the Depot District such
as an Economic Improvement District and third-party partnerships.
Identify key locations for wayfinding signage to direct users to available parking in downtown Richmond and
the Deport District.
Analyze the need for creating an overlay zone for the identified ‘Gateway Development’ areas to further
develop and enforce specific development regulations for these key corridors. See the Future Transportation
Map.
Evaluate the need for revitalization and redevelopment of the Richmond mall by determining the best and
highest use of the existing facility.
Update the City’s Unified Development Ordinance and zoning map to align with the comprehensive plan
policies, strategies, and future land use map.
Explore implementing renewable energy-friendly ordinances and permitting requirements, including support
for community-scale projects.
Explore enacting energy-smart zoning policies including walkable downtowns, village centers, and
limitations on fragmentation of open spaces and farmland.
Continue to inventory historical events, sites, buildings and related resources for the purpose of maintaining
an updated list of community assets and opportunities.
Establish a review process for proposed remodeling or demolition of structures and artifacts in the historic
district, wherein the Historic Preservation Commission would be involved in approving required permits.
Identify which of Richmond’s historic areas could benefit from being a designated historic district on the
National Register of Historic Places and then consider adopting a zoning overlay districts that incorporates
design/rehabilitation/restoration/preservation criteria for those areas.
Complete an annexation fiscal impact and cost-benefit analysis.*
4444
ESTABLISHING THE FRAMEWORK
PRIMARY OBJECTIVES
1. Use strategic and planned development to guide
growth.
2. Diversify the City’s housing stock to better serve
the needs of residents of all ages and abilities.
3. Encourage residential development in contiguous
neighborhoods.
4. Focus new development near existing
infrastructure.
5. Encourage home owner (re)investment and
neighborhood pride.
6. Encourage innovative sustainable (re)investment
in the City’s neighborhoods.
7. Enforce appropriate regulatory codes to eliminate
substandard living conditions.
POLICY STATEMENTS
1. Support the development of multi-family uses
such as apartments and condominiums within
the following Priority Investment Opportunity
Districts: Opportunity Zone 9, Opportunity Zone 2:
Downtown and the Depot District, Undeveloped
Land on US 27 (as deemed appropriate) and Low
to Moderate Income Neighborhoods.
2. Support the development of housing above
retail uses throughout the existing downtown by
removing barriers within the zoning ordinance and
providing incentives for development.
3. Utilize housing programs and incentives to both
rehabilitate existing housing stock and encourage
new housing developments.
4. Support sustainable energy activities by
encouraging energy assessments for residential
properties.
5. Encourage residential infill that is context-sensitive
to the architectural character of nearby housing
units.
6. Promote housing rehabilitation by developing and
enhancing partnerships with area contractors and
developers.
GROW
Richmond’s
Housing and
Neighborhoods
Neighborhoods are the fabric of a city. Each of
Richmond’s neighborhoods offer a unique and diverse
sense of place. Richmond’s neighborhoods are more
than just places to live. They are a mark on the City’s
historical timeline, they are centers of activity, and
they are home to places Richmond residents love. The
following goals and policy statements define how the
City of Richmond can GROW the City’s housing stock,
while also strengthening and maintaining existing
neighborhoods.
PRIMARY GOALS
Housing and Neighborhoods
Develop and maintain clean, safe neighborhoods
that offer diverse housing types to meet the needs of
current and future residents.
45
PROGRAM AND PROJECT RECOMMENDATIONS
Program or Project Priority
L M H
Continue to review the City’s Unified Development Ordinance to ensure that residential development standards are flexible and that the development review and permitting process is streamlined and efficient.
Establish a revolving loan fund, available for residents, to fund sustainable energy improvements to their residential properties.
Create, maintain, and update a landlord registration process.
Assess current regulatory processes to ensure appropriate, effective codes and enforcement are in place.
Determine the best way to create and fund a new city staff position related to Housing and Neighborhoods.
Explore implementing neighborhood-specific design guidelines.
4646
ESTABLISHING THE FRAMEWORK
GROW
Richmond’s
Support Services
One of the largest drivers of population growth is
often the availability of high-quality jobs. While jobs
bring people to an area, providing for the safety and
comfort of residents is often what keeps people in
a given place. Growing Richmond’s commercial and
neighborhood footprint will require the GROWTH of the
City’s economy, workforce, educational offerings, public
health and safety institutions, and community services.
PRIMARY GOALS
Economic & Workforce Development
Community Services
Generate a thriving economy through diversifying the
City’s economic base and responding to industry needs
by providing opportunities for lifelong learning and
workforce development services and programs.
Continue meeting the changing needs of the City's
residents through public safety, and support health,
education, and religious institutions while promoting
safe and healthy lifestyles.
PRIMARY OBJECTIVES
1. Explore ways to diversify the tax base while
generating adequate revenues to support the
City’s services and facilities.
2. Support the growth of existing businesses and
attract new high-quality business opportunities
that create jobs and wealth for residents.
3. Support and encourage collaboration among
educational institutions, local employers, and
local workforce development partners to create
opportunities for students.
4. Support the development of community facilities
such as religious institutions
5. Maintain a high level of service for all community
facilities through continuous monitoring and
evaluation (medical, police, and fire).
POLICY STATEMENTS
1. Promote and support local career pathways
strategies that can offer continued training
to advance a worker’s skills, pay, and future
employment opportunities over time.
2. Support high-quality early childhood development
and pre-K childcare options for residents.
3. Establish an integrated approach to support post-
secondary education.
4. Support for the incorporation of life skills courses
in primary/ secondary school curriculum and
training programs.
5. Support programming and encourage
collaboration to address local health and wellness
issues.
6. Partner or collaborate with local nonprofit
organizations to help achieve their missions and
provide residents needed services.
7. Establish desirable locations for future community
facilities such as education and religious
institutions.
47
PROGRAM AND PROJECT RECOMMENDATIONS
Program or Project Priority
L M H
Conduct a market study and business sector composition study to pinpoint the types of existing businesses and evaluate the opportunities for expanding.
Formulate and implement existing and new incentive programs to attract and sustain businesses such as funding assistance related to elevator installation, sprinkler systems, and other necessary facility improvements.
Complete an inventory of all existing and future workforce development and training programs for the labor force including programs offered through education institutions, and then work with the appropriate organization or agency to promote these opportunities.*
Evaluate and assess the need for additional support care services such as food pantries, shelters, and recovery centers.
Continue to annually evaluate current public safety facilities, equipment, and number of employees.
Continue to assess funding needs for firemen and police training
Complete an inventory of all publicly-owned facilities and evaluate the need for improvements.
4848
ESTABLISHING THE FRAMEWORK
CONNECT
Richmond’s
Destinations and
Neighborhoods
Connectivity is more than just transportation.
Connectivity includes all forms of getting from one
place to another and accounts for not only the
movement of people but the movement of water,
wastewater, and private utilities. By CONNECTING
Richmond’s destinations and neighborhoods to multiple
modes of transportation and high-quality public and
private infrastructure systems, the quality of life within
the city can continue to be enhanced.
PRIMARY GOALS
Transportation & Connectivity
Utility Infrastructure
Expand Richmond’s motorized and non-motorized
network to better facilitate local vehicular and
pedestrian movement, while at the same time,
minimizing the impact of regional traffic through the
city.
Provide efficient public services and utilities to foster
economic development while planning for future
demand.
PRIMARY OBJECTIVES
1. Increase connectivity in Richmond by planning
for safe and maintained vehicular transportation
routes.
2. Enhance and maintain an efficient motorized
transportation system using a hierarchy of
transportation facilities and amenities.
3. Create an interconnected transportation system
that prioritizes the needs of pedestrians, bicyclists,
and motorists equally.
4. Protect and conserve the region’s environmental
resources by encouraging innovative
transportation solutions in the long term.
5. Maintain a high level of service for all public
infrastructure systems through continuous
monitoring and evaluation.
6. Establish opportunities for all water, sewer,
electric, gas, and broadband providers to
coordinate and communicate to ensure efficient
and cost-effective expansion.
POLICY STATEMENTS
1. Maintain a high level of service for all public
infrastructure systems through continuous
monitoring, evaluation, and maintenance.
2. Promote pedestrian activity and walkable streets.
3. Utilize context-sensitive solutions to create
roadways that are compatible with their physical
environment and adjacent land uses.
4. Support the development of safety improvements
at locations where safety is deficient, striving to
design solutions that are most consistent with
Richmond's city character.
5. Support the development of a street maintenance
program that prioritizes roadway improvements
and coordinates them with economic development
initiatives.
6. Support the development of traffic calming
measures to reduce speeding and discourage
through traffic on local streets.
7. Coordinate, communicate, and cooperate with
funding agencies as it relates to completing
transportation improvements within city limits
where possible.
8. Coordinate transportation and utility infrastructure
improvements with land use, growth, and
economic development policies.
49
9. Maintain existing water, wastewater, and
stormwater infrastructure.
10. Improve and replace failing or deficient water,
sewer, and stormwater infrastructure.
PROGRAM AND PROJECT RECOMMENDATIONS
Program or Project Priority
L M H
Coordinate with private businesses, quasi-public agencies, and City departments to create a Citywide Transportation and Capital Improvements Plan. Following the completion of the plan, review and update it annually.*
Consider a range of funding mechanisms, including establishing area assessment districts, economic improvement districts, and the use of development fees to help fund projects such as roadway improvements, sewer services, and stormwater services, etc.
Establish opportunities for all water, sewer, electric, gas, and broadband providers to coordinate and communicate to ensure efficient and cost-effective expansion
Encourage ongoing collaboration by developing a coordinated development review process and committee to ensure that transportation and infrastructure upgrades are included in development decisions.
Become an Indiana Economic Development Corporation (IDEC) Broadband Ready Community to incentivize the development and expansion of technology-focused infrastructure.
5050
ESTABLISHING THE FRAMEWORK
CONNECT
Richmond’s
Parks & Open Space
Residential populations need spaces to relax, connect
with nature, exercise, and play. A city’s parks, open
spaces, and trails are critical pieces of infrastructure
because they provide a central hub for neighborhoods.
By CONNECTING Richmond residents to a diverse set
of open spaces and recreational facilities, the City can
continue to build a strong sense of community.
PRIMARY GOALS
Parks and Recreation
Enhance Richmond’s parks and recreation system
by providing high-quality, diversified park amenities
including trail connections, recreational facilities, and
programming experiences for all users.
PRIMARY OBJECTIVES
1. Support the maintenance, growth, and
enhancement of existing recreational facilities and
programming.
2. Upgrade and/or renovate existing facilities based
on priority.
3. Expand the greenways and trails system to
connect neighborhoods with parks, commercial
uses, schools, and other communities.
POLICY STATEMENTS
1. Support facilities and programming that enhance
and promote park, recreation, and cultural
destinations.
2. Expand and add programs and service to meet
current and future community recreational needs.
3. Provide support, resources, and opportunities for
underprivileged and disadvantaged members of
the community.
4. Provide ADA-compliant facilities and equipment
for disadvantaged members of the community.
5. Support the development of relationships and
partnerships with appropriate City departments,
community entities, and agencies.
51
PROGRAM AND PROJECT RECOMMENDATIONS
Program or Project Priority
L M H
Update the 2009-2013 City of Richmond Parks and Recreation Strategic Plan. Following a comprehensive update to the plan, review and update the City of Richmond Parks and Recreation Plan every five years.*
Review and update the 2015 City of Richmond Bicycle and Pedestrian Master Plan within the next 3-5 years.
Develop a marketing and utilization plan to measure and promote the image, usage, role, and effectiveness of Richmond’s parks.*
Collaborate with parks department staff on the development of public and private open spaces, bicycle and pedestrian corridors, and transportation enhancements.
As needed, continue to evaluate park and recreation department facilities and staff to ensure quality community amenities.
5252
ESTABLISHING THE FRAMEWORK
PROTECT
Richmond’s
Natural Resources
Natural features such as river corridors, floodplains,
natural landscapes, and gorges are unique and are
elements that cannot be recreated in man-made
built environments. These elements contribute to the
City’s parks and open spaces but can also be used to
support developments and unique programming. By
identifying and celebrating the City’s unique natural
assets, Richmond can develop and grow in a way that
PROTECTS the environment in both the short and long
term.
PRIMARY GOALS
Environment & Sustainability
Conserve resources and protect Richmond’s natural
environment by guiding growth and redevelopment
with an overarching philosophy of sustainability.
PRIMARY OBJECTIVES
1. Protect, connect, and restore natural areas
including wood lots, wetlands, floodplains, and
other ecologically sensitive areas.
2. Educate and encourage local residents and
organizations to preserve the overall quality of
Richmond’s natural resources.
3. Encourage the development of Citywide
sustainability and resiliency strategies in the long
term.
4. Educate and encourage local residents and
organizations on community emergency
preparedness.
POLICY STATEMENTS
1. Reduce the risk of flood damage now and in the
future by restricting development within the 100-
year floodplain.
2. Allow for both active and passive recreational
opportunities within the 100-year floodplain where
desirable.
3. Continue to protect additional land such as
forest buffers along streams, and tributaries for
environmental purposes as needed.
4. Promote urban reforestation.
5. Provide for safe access and enjoyable experiences
along the Whitewater River for all users.
6. Enhance the scenic, cultural, recreational, and
natural resources of the Whitewater Gorge.
7. Allow for and accommodate for solar parks by
ensuring that applicable regulations offer clarity
and stability while properly mitigating impacts.
8. Continue to monitor greenhouse gas emissions
and update the database.
9. Encourage reduction of greenhouse gas
emissions.
53
PROGRAM AND PROJECT RECOMMENDATIONS
Program or Project Priority
L M H
Create a management and recreational-use plan for the Whitewater River and Whitewater Valley Gorge Park.*
Work with the Richmond Environmental Sustainability Commission to prepare a Citywide Sustainability Action Plan.
Appoint a sustainability coordinator.
Continue to protect the City’s groundwater resources by reviewing and updating the standards of the City’s existing Aquifer Protection Overlay District as necessary to reflect updates to the City’s Future Land Use map and land use classifications.
Consider establishing a zoning district specifically for protection of Richmond’s wetlands, floodway, and floodplain.*
Determine the appropriate location for solar energy and then review the ordinance language to determine if an update is necessary.
Create a resiliency plan that aligns community priorities and resources to better withstand hazardous / disaster-related events and recover more quickly.
Adopt Stronger Measures to improve the Quality and Control of Stormwater.
Adopt a City-wide policy/ process that addresses the location, conservation and mitigation of species habitat to enable the protection of Richmond’s open spaces.
5454
ESTABLISHING THE FRAMEWORK
CELEBRATE
Richmond’s History,
Culture, and People
Richmond’s history and culture should never be
forgotten. The City’s continued success will expand
upon our historic past, our diverse cultural offerings and
our passionate and friendly people. By CELEBRATING
the City’s offerings and accomplishments of Richmond’s
leaders, residents and business owners, all can take
part in the City’s success moving forward.
PRIMARY GOALS
Community Identity
Administrative Processes and Procedures
Establish a brand, identity, and character that is
authentic to Richmond and generates a sense of place
for its residents, visitors, and workforce.
Improve government efficiencies through the use
of modern technology by delivering consistent
enforcement processes, transparent and frequent
communication, and opportunities for collaboration
among entities, agencies, and/or organizations.
PRIMARY OBJECTIVES
1. Establish an identity for the City of Richmond that
can be branded and marketed.
2. Support the growth and enhancement of year-
round events and festivals throughout the city.
3. Utilize the built environment to create a sense of
place and identity.
4. Promote key points of interest and supporting
facilities (i.e., parking) to residents and visitors.
5. Improve the coordination and collaboration
between city, county, and state governments, with
businesses and the community.
6. Regularly report progress and accomplishments to
residents, while providing opportunities for them
to express questions and concerns.
7. Streamline applications, permitting, and inspection
processes by using a digital, online system.
POLICY STATEMENTS
1. Preserve, enhance, and celebrate the history of
Richmond.
2. Utilize digital and traditional platforms to
strengthen the Richmond’s visual identity.
3. Encourage and promote the strategic placement
of public art in the community.
4. Encourage and develop mechanisms for
coordination and cooperation, such as leadership
roundtable, among nearby units of government.
5. Recognize significant actions by community
leaders.
6. Encourage community engagement between city
staff, local leaders, and residents.
7. Support revisions to the structure of code
administration processes to align with the
objectives of this comprehensive plan and the
future land use place type definitions.
55
PROGRAM AND PROJECT RECOMMENDATIONS
Program or Project Priority
L M H
Create a media relations and marketing plan for the promotion of Richmond that incorporates both online platforms and paper methods. *
Identify a permanent, indoor location for the farmer’s market during the winter within the downtown core.
Partner with the Wayne County Convention and Tourism Bureau to advertise and market events and festivals
Create a citywide public art master plan.
Create a gateways and wayfinding signage master plan.
Convene local and regional energy managers to discuss best practices.
Upgrade the City website, social media pages, community events calendar, and other online and paper communications media.
Explore ways to implement an online dashboard to report progress and accomplishments.*
Establish a central clearinghouse and information center for all development applications, permitting, and inspections.
56
ESTABLISHING THE FRAMEWORK
FUTURE LAND USE AND
TRANSPORTATION MAP
The Future Land Use and Transportation Maps are
intended to be a complement to the goals and policy
objectives included within the regulatory framework.
The Future Land Use and Transportation Maps serve
as a visual representation of the City’s intended future
development, redevelopment, and reinvestment. The
new Future Land Use and Transportation Maps promote
an integration of compatible land uses, thoughtful
transportation systems, and strong placemaking
qualities.
These maps should be used when applying land use
and transportation recommendations to specific sites or
districts. The Future Land Use and Transportation Maps
build upon the current development pattern within
Richmond with a focus on investment within strategic
areas of the City’s core.
Future Land Use Map
City officials create land use plans for protecting the
character of a community as it grows. City officials use
land use plans to make choices that allow desirable
patterns of development to become established. A map
of community land is used to diagram the different ways
that a community needs to use the land. City officials
use this diagram as a visual reference when making
responsible decisions about future development in
the community. Richmond Rising: A Community Action
Plan uses a place type-based approach to future
land use planning. Areas within the City of Richmond
and the two-mile fringe have been classified into
eight unique place types. Unlike traditional land use
designations, which are applied parcel by parcel, place
type designations can define the nature and desired
character of uses on a larger scale. The approach
allows for greater flexibility regarding future land use
decisions and puts an emphasis on how adjacent place
types interact and impact one another.
Each of Richmond’s eight place types describe the
character, land uses and level of connectivity within
each designation. Land use place types have been
designated based on existing land use, built form,
physical characteristics and conditions, growth trends
and community input. Following the adoption of the
Richmond Rising plan the City should regularly review
the Future Land Use Map and individual place types
to ensure that the land uses are responsive to the
community’s needs and goals.
57
S A ST
N A ST MAIN ST
NW L ST
PEACOCK RD
W MAIN ST
S L ST
S E ST
S Q ST GARWOOD RDHENLEY RDNW 5TH STSALISBURY RDW INDUSTRIES RDFLATLEY RDROUND BARN RDW WEBSTER RD CART RDTURNER RD
FARLOW RDSALISBURY RDAIRPORT RDGATES RD
RICHMOND
MUNICIPAL
AIRPORT INDIANA / OHIO STATE LINE6
1
2
3
4
57
CENTERVILLE
NEW PARIS
SPRING GROVE
Legend- Future Land Use Map
Priority Investment Opportunity (PIO) District
Central Neighborhoods
Traditional Neighborhoods
Commercial
Industrial
Community Services
Parks, Open Space, and Natural Features
Agriculture/ Rural Residential
Urban Mixed Use
FUTURE LAND USE MAP
North
58
ESTABLISHING THE FRAMEWORK
Agricultural/ Rural Residential
This category consists of areas of extremely low density within the extra territorial jurisdiction of the City. The
Agricultural/ Rural Residential category generally includes land for farming or for the raising of livestock including
activities such as crop propagation, dairying, stock animal, and poultry. The Agricultural/ Rural Residential category
also supports residential homes, and large lot rural subdivisions. These areas are of the lowest density in Richmond
and also include large expanses of undeveloped open land and natural areas. New development of other land use
categories within the Agricultural/ Rural Residential areas should be discouraged in order to limit the conversion of
these areas to more intense development.
Appropriate attributes of land use with the Agricultural/ Rural Residential place type include: farms, plant nurseries,
and other agricultural uses for growing plant and crops; detached single-family homes as farmsteads, on large rural
lots, and in existing rural subdivisions; barns, stables and other agricultural accessory structures; and undeveloped
and natural areas kept to mitigate the effects of agricultural uses and development.
Key attributes of connectivity within the Agricultural/ Rural Residential place type include: automobile access to
individual properties through driveways; sidewalks and pedestrian pathways should be placed appropriately to
provide access to rural residential areas that are adjacent to urbanized areas.
59
Central Neighborhoods
This category includes older residential neighborhoods within the City’s urbanized area and are largely concentrated
around downtown and the Depot District. The Central Neighborhood place type features an older housing stock
on traditional grid block patterns. This place type provides housing options in an urban setting, on typically smaller
lots when compared to the Traditional Neighborhood place type. The Central Neighborhood place type features a
dense, walkable environment, allowing residents access to commercial areas, parks and open space, community
facilities and local destinations. Since these areas are some of Richmond’s oldest neighborhoods, reinvestment,
upkeep, maintenance and pride in ownership are critical to the neighborhood’s long-term stability. New construction,
significant renovations and building additions should consider the existing scale, style and character of the
surrounding area.
Appropriate attributes of land use with the Central Neighborhood place type include: single- family detached units
are the main type of housing; single- family attached units such as townhomes can be strategically integrated with
the single-family detached units; apartment buildings and other multi-family units if placed on block ends or edges
of neighborhood districts where they contribute to the transition from a residential to higher density use; well-
maintained accessory units; public and semi-public facilities such as schools, fire stations, and religious institutions;
and public parks and open spaces to ensure that all neighborhoods have access to areas for interaction and
recreation.
Key attributes of connectivity within the Central Neighborhood place type include: automobile access to individual
properties through either driveways or public alleys; on-street parking to accommodate visitors and residents;
sidewalks and pedestrian pathways along key routes to provide connections to neighboring residential areas,
nearby destinations including commercial areas, schools and public parks; well-designed, safe intersections that
provide adequate infrastructure for pedestrians of all abilities and ages.
60
ESTABLISHING THE FRAMEWORK
Traditional Neighborhood
This category includes medium to low density residential neighborhoods located outside of Richmond’s urban core.
The place type serves as a transition between rural and high-density areas such as commercial corridors and mixed
urban development. These areas tend to offer newer housing, typically in the form of larger, single family detached
units on lots larger than those in the Center Neighborhood place type. Often times Traditional Neighborhoods are
developed as larger subdivisions. Traditional Neighborhood areas should support the development of high-quality
residential products that limit suburban development which could place a strain on community resources.
Appropriate attributes of land use with the Traditional Neighborhood place type include: single-family detached
units are the main type of housing; single- family attached units such as townhomes can be strategically integrated
with the single-family detached units; apartment buildings and other multi-family units that are integrated into larger
cohesive developments where they contribute to the transition from a residential to higher density use; public and
semi-public facilities such as schools, fire stations, and religious institutions; and public parks and open spaces to
ensure that all neighborhoods have access to areas for interaction and recreation.
Key attributes of connectivity within the Traditional Neighborhood place type include: automobile access to
individual properties through driveways; developed subdivisions have a complete sidewalk network within the
development; sidewalks and pedestrian pathways extend along key routes to provide connections to neighboring
residential areas, nearby destinations including commercial areas, schools and public parks; well-designed, safe
intersections that provide adequate infrastructure for pedestrians of all abilities and ages.
61
Urban Mixed Use
This category is comprised of properties in Downtown Richmond and the Depot District, both of which form the City’s
urban core. The place type is the focal point of the community and offers a variety of distinct uses within a lively
active center. As the City’s most diverse area, the Urban Mixed-Use place type balances numerous unique roles. The
Urban Mixed-Use place type is the highest intensity of development with compact, high density blocks. The scale of
the development ranges greatly to further support the mix of uses that help make Downtown and the Depot District
an energetic City destination.
Appropriate attributes of land use with the Urban Mixed-Use place type include: restaurants, cafes and bars which
cater to breakfast, lunch and dinner crowds; commercial retail and service businesses such as service businesses
or clothing shops that create a unique pedestrian oriented shopping experience; high density residential units
(apartments or condominiums) developed as a part of a mixed use building; hotels or other hospitality uses that
accommodate overnight lodging; professional and medical offices; performance or entertainment venues; public
social service institutions; co-working spaces; public and semi-public facilities such as schools, and religious
institutions; and public parks and open spaces to ensure that all neighborhoods have access to areas for interaction
and recreation.
Key attributes of connectivity within the Urban Mixed Use place type include: automobile access to individual
properties through public alleys; on-street parking to accommodate visitors and residents; off-street parking lots
that are accessible from side streets or alleys; streetscapes that provide sidewalks, public seating areas, and
other amenities that encourage walkability and social interaction; sidewalks and pedestrian pathways to provide
connections to neighboring residential areas, nearby destinations including commercial areas, schools and public
parks; well-designed, safe intersections that provide adequate infrastructure for pedestrians of all abilities and ages;
and thematic streetscape elements including public art, and wayfinding signage to support the cultural and history of
the district.
62
ESTABLISHING THE FRAMEWORK
Commercial Corridor
This category is primarily located along Richmond’s high traffic, arterial roadways which serve as primary entry and
exit points to the City. The Commercial Corridor operates as the primary shopping district for Richmond residents and
visitors by providing a mix of every day essentials and specialty goods and services. The position of the Commercial
Corridor place type conveniently serves both local residents and regional visitors. The Commercial Corridor place
type allows for a great deal of flexibility with regards to intensity and scale of development, supporting both smaller,
local businesses and regional destinations and attractions includes a wide range of commercial uses and service
uses including retail, service businesses, restaurants, professional offices and medical related uses. Commercial
land uses should generally be located away from or buffered from residential districts due to their high volume of
traffic, potential to generate noise, operate at late hours, create obtrusive lighting and other adverse constraints.
Appropriate attributes of land use with the Commercial Corridor place type include: restaurants, cafes, bars including
franchise and drive thru restaurants; day to day retail and consumer service businesses such as grocery stores,
salons, convenience stores and businesses that provide basic goods and services; specialized retail and service
businesses such as hardware or office appliance stores; professional and medical offices such as branch banks,
pharmacies, dental offices; entertainment uses such as movie theaters that provide entertainment and amusement;
auto-oriented uses such as gas stations and auto repair shops; and public and semi-public facilities such as schools,
fire stations, and religious institutions.
Key attributes of connectivity within the Commercial Corridor place type include: well-planned, and coordinated
automobile access to individual properties that reduces interruptions to traffic flow; parking is located in screened,
off street lots that are ideally located behind the building; parking areas include sidewalks, designated routes and
other amenities to ensure pedestrian safety; and sidewalks and pedestrian pathways along key routes to provide
connections to neighboring residential areas, nearby destinations including commercial areas, schools and public
parks.
63
Industrial
This broad category includes areas deemed appropriate for light to heavy industrial uses, which are generally
not compatible with residential development. The scale and intensity of these areas vary greatly and provide
opportunities for both local and regional developments. The Industrial place type should be appropriately screened
and buffered from adjacent incompatible uses. Since many of Richmond’s industrial areas are located along primary
thoroughfares, a thoughtful approach to development and site design should be applied within these areas to
reduce the impacts on community aesthetics.
Appropriate attributes of land use with the Industrial place type include: light to heavy manufacturing uses whose
primary objective is for compounding, processing, packaging and assembling of products; warehouses, shipping
and logistics facilities that provide for the storage, shipping and coordination of materials and goods; research and
development, laboratories and testing facilities; home and corporate offices included larger, planned campuses;
general offices, call centers and storage facilities; and electricity, gas, and water services such as power plants,
sewage treatment plants, and landfills.
Key attributes of connectivity within the Industrial place type include: well-planned, and coordinated automobile
access to individual properties that support the shipping and receiving of goods and services; parking is located in
screened, off-street lots that are located behind the building; parking areas include sidewalks, designated routes
and other amenities to ensure pedestrian safety; and sidewalks and pedestrian pathways along key routes to
provide connections to neighboring residential areas, nearby destinations including commercial areas, schools and
public parks.
64
ESTABLISHING THE FRAMEWORK
Parks, Open Space, and Natural Areas
The Parks, Open Space and Natural Areas place type is located throughout the community and serves as a key
destination and amenity to the City. This category includes land for the use of nature preservation, protection and
passive recreation such as Hayes Arboretum and along the Whitewater Gorge, as well as properties and facilities
devoted to supporting active recreation.
Appropriate attributes of land use with the Parks, Open Space and Natural Areas place type include: public parks
and recreational areas; open areas designated specifically for sports of various types; indoor and outdoor recreation
facilities; natural areas, forest preserves and areas set aside for the conservation of public land; retention areas;
lakes; golf courses; and greenbelts.
Key attributes of connectivity within the Parks, Open Space and Natural Areas place type include: onsite automobile
access including off street parking lots; internal pedestrian and shared use path facilities; and sidewalks and
pedestrian pathways along key routes to provide connections to neighboring residential areas, nearby destinations
including commercial areas, schools and public parks.
65
Institutional / Community Services
This broad category includes uses that serve and meet community needs through a wide range of facilities including
City utilities, medical campuses and clinics, local, state and federal government buildings, residential care facilities,
hostels, disability housing, childcare centers, cultural facilities churches, places of sacred and religious affiliation,
cemeteries, hospitals, civic or religious uses, schools, public/private schools, colleges/universities.
While some smaller, neighborhood scaled facilities have been integrated with other place types, the designated
Institutional/ Community Service areas should be addressed individually to ensure that their unique characteristics
and needs are properly managed. As opportunities arise, efforts should be made to further integrate these uses into
the surrounding area by improving access and aesthetics of the identified development.
66
ESTABLISHING THE FRAMEWORK
Priority Investment Opportunity (PIO) District
Priority Investment Opportunity (PIO) District: These districts represent critical opportunities for the City of Richmond
to improve the city’s identity, local neighborhoods, local and regional employment centers, vehicular and non-
vehicular connectivity, and public perceptions. Refer to the Reinvestment and Redevelopment Framework Section for
additional information.
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ESTABLISHING THE FRAMEWORK
Future Transportation Map
Land use and transportation are obviously closely
linked. Transportation corridors are defined as not only
the streets, but also sidewalks, streetscape, and the
adjacent sites extending from building face to building
face. The character of a corridor can greatly influence
the character of a specific site or even an entire district.
As a complement to the identified place types, the City’s
major corridors were classified into four categories:
Preservation, Correction, Expressway Viewshed and
Gateway Development. While some corridors can be
placed entirely within one category, other corridors
exhibit varying characteristics and may change
category from one segment to another. The three major
thoroughfare corridor categories are described below
and illustrated on the Future Transportation Map.
“Preservation Corridors” are streets such as portions
of U.S. 27 and U.S. 40, which pass through areas
where the potential for significant redevelopment
or conversions from one land use to another exists.
These parcels should be reviewed with an eye toward
preventing land use and thoroughfare conflicts
through application of zoning and access management
standards. Streets in this category have the opportunity
to contribute positively to a well-coordinated
transportation system in a setting consistent with the
desired character of the corridor.
“Correction Corridors” are streets bounded primarily
by commercial and/or industrial uses. Traffic volumes
along several of these corridors are well above the
capacity envisioned when the roads and right-of-way
were conceived. These corridors are complex, with
confusion, traffic congestion, intensive activity, and/or
an incomplete transportation network. These corridors
are in need of multiple actions, such as widening
and medians, to correct problems that resulted from
cumulative changes over time.
“Expressway Viewshed Corridors” are areas either
along a freeway or expressway or at interchanges that
act to serve as a “front door” to motorists traveling
along these roadways. Expressway Viewshed Corridors
within the study area are located along I-70. Key
interchange areas are located at Williamsburg Pike
Road, U.S. 27, Middleboro Pike (S.R. 227), and U.S.
40. These interchanges are in need of significant
enhancements to make a dramatic statement that one
has arrived in the City of Richmond. Improvements to
the appearance of the corridor along I-70 could include
the addition of landscaping, signs and lighting, and
screening of outdoor storage and loading areas.
“Gateway Development” are areas where roadway
improvements and future land use and development
changes need to occur together as a comprehensive
and integrated approach. These designated areas
would benefit from further planning study to review the
needs of the roadway and the intended development.
69
S A ST
N A ST MAIN ST
NW L ST
PEACOCK RD
W MAIN ST
S L ST
S E ST
S Q ST GARWOOD RDHENLEY RDNW 5TH STSALISBURY RDW INDUSTRIES RDFLATLEY RDROUND BARN RDW WEBSTER RD CART RDTURNER RD
FARLOW RDSALISBURY RDAIRPORT RDGATES RD
RICHMOND
MUNICIPAL
AIRPORT INDIANA / OHIO STATE LINECENTERVILLE
NEW PARIS
SPRING GROVE
Legend- Transportation Map
Preservation Corridor
Correction Corridor
Gateway
Expressway Viewshed Development
Gateway Development
FUTURE TRANSPORTATION MAP
North
70
ESTABLISHING THE FRAMEWORK
REINVESTMENT AND REDEVELOPMENT FRAMEWORK
The Future Land Use and Transportation Maps also highlights seven areas within the
city that represent Priority Investment Opportunity (PIO) Districts. These PIO districts
were identified through a series of public engagement activities and represent
critical opportunities for the City of Richmond to improve the city’s identity, local
neighborhoods, local and regional employment centers, vehicular and non-vehicular
connectivity, and public perceptions. The identified PIO districts include the following:
• Opportunity Zone 2
• Opportunity Zone 9
• Gateway to Indiana (US 40 and I-70 Interchange)
• Gateway to Indiana (US 27 and I-70 Interchange)
• Midwest Industrial Park
• Middlefork Reservoir Area
• Undeveloped Land on US27
The following pages provide more detailed guidance for each of the PIO districts. This
section builds on Richmond’s desire to become a VIBRANT community where there
are opportunities for EDUCATION, ENTERTAINMENT, and EMPLOYMENT by identifying
specific strategies for each district. The strategies outlined for each of the PIO districts
focus on initiatives that the City of Richmond, or any one of their partners, can lead to
GROW, CONNECT, PROTECT, and CELEBRATE the City’s core opportunities areas.
The information included here for each district should be used to guide City capital
investment and should also be used to complement the broader regulatory goals and
policies outlined in the regulatory framework.
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ESTABLISHING THE FRAMEWORK
Opportunity Zone 2
Downtown and the Depot District
Opportunity Zones are economic development tools promoting investment in
distressed communities through legislation enacted by the Federal Tax Cuts and Jobs
Act of 2017. There are 8,700 Census tracks across the United States designated as
Opportunity Zones by the U.S. Department of Treasury, incentivizing investments in
these distressed communities to better address local needs in areas such as business
growth, improvements to housing, and improvements to infrastructure.
Richmond's Opportunity Zones are prime for investment. For property owners
within the zone, a number of opportunities exist. The designation of the zone makes
available land and buildings more appealing for potential developers. Any capital
gains from the sale of property could be used to invest in other Opportunity Zone
projects, leveraging the program's tax incentives.
Located within this designated Opportunity Zone is Richmond’s central business
district, which is concentrated along a twelve to sixteen block portion of Main
Street (the National Road) and broadens out one block north and south to North A
Street and South A Street. Contiguous to this compact business core are walkable
neighborhoods, government campus, churches and reasonable access to the
Whitewater River Gorge. Unlike many downtowns similar in size, elevated road-ways,
multi-lane arterials or radical land uses changes have not been built thus making the
downtown environment barrier free and physically accessible by foot or vehicle.
One of the physical challenges facing Downtown is the ability to broaden the territory
of Downtown proper by linking the Central Business District to adjacent business
districts such as Old Richmond, Elizabeth Starr Historic District and the Historic Depot
District. By including these districts with the downtown, a better story can be told
through marketing and public relations campaigns of the unique districts and the
variety of products, services and special environments within the downtown.
With coordinated efforts, and on-going attention to details, historically rich downtown
environments such as downtown Richmond can thrive as centers of both commerce
and culture.
MAIN ST
N A ST
S 8th STS 9th STS A ST
N C ST
N E ST
N 15th ST N 23rd STN D ST
OPPORTUNITY ZONE #2
73North
74
ESTABLISHING THE FRAMEWORK
Opportunity Zone 9
Opportunity Zones are economic development tools promoting investment in
distressed communities through legislation enacted by the Federal Tax Cuts and Jobs
Act of 2017. There are 8,700 Census tracks across the United States designated as
Opportunity Zones by the U.S. Department of Treasury, incentivizing investments in
these distressed communities to better address local needs in areas such as business
growth, improvements to housing, and improvements to infrastructure.
Richmond's Opportunity Zones are prime for investment. For property owners
within the zone, a number of opportunities exist. The designation of the zone makes
available land and buildings more appealing for potential developers. Any capital
gains from the sale of property could be used to invest in other Opportunity Zone
projects, leveraging the program's tax incentives.
S G ST
S 23rd STS L ST
WERNIE ST
LIBRARY AVES O ST S 8th STSTRAUGHTLINE PIKES 16th ST75
OPPORTUNITY ZONE #9
North
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ESTABLISHING THE FRAMEWORK
Gateway to Indiana (US 40 and I-70)
Gateways are an important distinction point for an entrance into a city. These design
elements let visitors know they are entering a place that is unique and memorable.
It is a way of providing interest so as to welcome visitors and invite them to explore
the city a little closer. Gateway elements can also provide a city with an image that is
remembered by visitors and passerby’s alike. These entrances can be signified with
small signs or bold and memorable markers. Gateway elements can be landscape
treatments along a road, special bridge treatments at an overpass, or a piece of
sculpture at the city line. The City of Richmond has several important gateway areas at
its borders that deserve gateway elements.
Of particular importance is the US 40 and I-70 interchange, not only is it a gateway
into Richmond, it is a gateway into the State of Indiana. This area could be a visitor’s
first or last impression of Indiana. Along with a unique gateway sign or landscaping
treatment, the US 40 corridor should be just as memorable. The Gateway to Indiana
PIO district could benefit from further study to review the needs of the roadway and
the intended development.
77
MAIN ST
INDIANA / OHIO STATE LINEWOODSIDE
D
RHAYES ARBORETUM RDGRAVEL PIT RDW
E
A
T
O
N
P
I
K
E
S A ST
S D ST 77
GATEWAY TO INDIANA (US 40 and I-70)
North
78
ESTABLISHING THE FRAMEWORK
Gateway to Indiana (US 27 and I-70)
The Northwest corner at the intersection of Chester Boulevard-US 27 and I-70- is an
area of significant investment into Richmond’s future. With the recent and ongoing
institutional expansions taking place on the Indiana University East and Ivy Tech
campuses along with the addition of the Reid Health medical center to this area,
Richmond can guide and shape future adjacent land that will be able to continue to
take full advantage of this economic development opportunity.
The intersection of US 27 and I-70 also represents an important entry into the city
and should be planned to reflect a “Gateway” to Richmond theme. With both of these
opportunities in mind, the City should consider a medium density zoning overlay
district on all four sides of the intersection to promote predominately office and
hospitality uses. This model would complement the education, technology, and health
care uses while providing opportunities for medical and technology related office
development to be constructed in an extended campus-like environment. Creatively
designed green space would link the four corners while providing a unique and
inviting setting for gateway signage into Richmond. Site design would be developed
using the sustainability standards and design guidelines of Richmond. The images
below represent the campus-like developments that should be constructed at the Rt.
27 and I-70 intersection.
W INDUSTRIES RD
HIGHLAND LAKE
GOLF COURSE
HIGHLAND RD
DILLION DR CHESTER BLVD79
GATEWAY TO INDIANA (US 27 and I-70)
North
80
ESTABLISHING THE FRAMEWORK
Midwest Industrial Park
The land in the northwest corner of Richmond along West Industries Road and
Williamsburg Pike is essential to economic development in Richmond and provides
jobs to many of the Richmond residents. Over time, this area has become primed
for industrial uses due to proximity to the interstate and railroad corridor. Access
is a major component to the success and demand of this area. As infrastructure
expansions and development occur, it is important to explore funding opportunity and
incentives involved with the Tax Increment Financing District that is already in place.
If the market continues to grow and development starts moving into the 2 mile fringe,
it could be worth exploring the fiscal impact of annexing additional land for industrial
uses.
81
W INDUSTRIES RD
SALISBURY RDNW L ST
GARR JACKSON RDROUND BARN RD=NW 5TH STWIL
L
I
A
M
S
B
U
R
G
P
I
K
E
MIDWEST INDUSTRIAL PARK
North
82
ESTABLISHING THE FRAMEWORK
Middlefork Reservoir Area
The land around Middlefork Reservoir immediately to the northeast of Downtown
Richmond is in Wayne County and provides a reminder to all of the importance
of quality rural living through the pastoral surroundings of this beautiful area. As
infrastructure expansions move in this direction, pressure from the real estate
community will grow to consider commercial and industrial development for the
conveniently located ground. Residential land uses in this area are very appropriate
as they promote a rural vernacular development pattern that is a unique offering
for homebuyers. This area should continue to focus on low-density residential
development with minor amounts of commercial use to illuminate this rural live work
option for residents to consider. Additional greenspace and trail systems for walking
and biking should be integrated into the stream corridors and reservoir territory to
provide a comfortable and safe transportation alternative connection into the central
city.
8383
W INDUSTRIES RD
SPRING
GROVE MIDDLEBORO RDNEW PARIS PI
K
E
PLEASANT VIEW RD
WEISS RD
BUTTERMILK RDSMYMA RD
MIDDLEFORK
RESERVOIR
MiDDLEFORK RESERVOIR AREA
North
84
Undeveloped Land on US27
Along Chester Boulevard (US 27), exists a great opportunity. The 81-acre site has the
potential to be a major local and regional attraction and a catalyst for the continued
transformation of the City of Richmond. Since the City owns the six total parcels that
make up the district, the City has the unique opportunity to leverage this site and their
initial investment to create a development foundation that will generate more revenue
within the heart of the community and provide the necessary opportunities that will
help promote positive growth and improvements for the city. A thoughtful approach
to this site not only presents the opportunity for new jobs, but also an investment that
could attract new residents to the community, retain young professionals, and create
a place that is attractive to both visitors and natives alike.
Richmond Rising: A Community Action Plan, outlines a series of scenarios that outline
how the 81-acre site can evolve into the local and regional destination that the City
envisions. While work has been ongoing since 2017 to ready this site for reinvestment
and redevelopment, additional efforts are still ongoing, including the finalization
of the Indiana Department of Environmental Management (IDEM) environmental
mitigation study, appropriate mitigation plans and any associated environmental
covenants. With the end development mix being impacted by the environmental
mitigation process and the general economic market, the recommendations included
in this segment are intended to be flexible and to outline a series of realistic end uses
that meet the City’s goals for the site. In order to guide future capital investment, each
site scenario includes a high-level overview of infrastructure costs, some of which
could be shouldered by the City or any one of their partners. For further information
on the site’s priority projects or next steps refer to Chapter 4: Following the Blueprint.
ESTABLISHING THE FRAMEWORK
8585
WATERFALL ROAD
OAK DRIVE
SUNSET BLVD
SIM HODGIN PKWY MIDDLEBORO PIKENEW PARIS PIKE
SPRING GROVE
UNDEVELOPED LAND ON US 27
North
86
Concept A - “Life by the River”
Living within nature is an appealing concept to many, but especially in a place where
so much of the city is urbanized and developed, it is a commodity that many don’t
get to experience. The main driver in this “Life by the River” concept is to provide
a variety of unique living opportunities that overlook the river and the neighboring
woodland setting, just outside of downtown Richmond. New development is geared
to provide an inviting place to stay and call home in Richmond, particularly to
professionals and younger residents looking for a low-maintenance, urban lifestyle.
This concept will offer an exciting place to live, and a place to attract people of all
walks of life to the city of Richmond. To the north, apartments would be built into the
hillside, and trails would provide a convenient connection to the natural areas below
and adjacent development. Mixed use development within the center of the site,
will provide commercial opportunities on the lower floors while providing elevated
views of the surrounding landscape from condos and apartments above. Within these
developed spaces, typical residential amenities will be provided to accommodate
new residents. Pools and outdoor recreation will be required within residential
developments, and plazas and urban green space can be programmed into new
commercial development.
While creating a great place to live would be a major boost to the local community,
creating opportunities for new jobs and careers would benefit both the residents,
and the city as a whole. Commercial uses will be promoted along Chester Boulevard
(US 27) with the intent of encouraging future growth on multiple levels. New
business will support an influx of new residents, and meet the needs of the growing
population by offering goods and services that are needed on a daily basis. Offering
such opportunities within close proximity of residences will promote a lifestyle
that incorporates all of the daily needs within a local community, without requiring
extensive commutes or an abundance of increased traffic.
Finally, additional funding from new development, will be used to enhance adjacent
improvements including the development of adjacent parks and trails. Open space
will be developed to provide flexible outdoor recreation space where visitors can
interact in large groups or in private gatherings, providing local amenities and
features that will promote the interaction with nature and an active lifestyle.
ESTABLISHING THE FRAMEWORK
CONCEPT A
87
With a unique setting, next to the Whitewater River, there is a great opportunity to
capitalize on the aspect of life within nature, and bring people closer to it. The park-
like setting provides a great compliment to adjacent living spaces, and the prime
location along Chester Boulevard is such that businesses should be able to thrive and
service the local community.
Concept B - “Whitewater Destination”
To really draw in new visitors and stimulate economic growth, the “Whitewater
Destination” concept is based around a high-profile anchor use, located within the
Undeveloped Land on US27. By developing a feature destination, such as a casino
or a convention-type center, guests will be drawn to the location due to the unique
nature of such development. While outside interest will be drawn toward the site,
small businesses will complement the influx of additional traffic and offer guests the
type of goods or services that are in demand.
Supporting commercial uses will provide restaurants and diners to eat and entertain.
Adjacent hotels will provide an opportunity for extended visits, and neighboring
shops and public plazas will provide places to relax and enjoy some down time, while
visitors spend a few days in Richmond. Strict design guidelines will ensure that all
new development provides desirable amenities to promote such spaces that will
enhance a visitor’s experience and provide a unique stay that is both comfortable and
enjoyable.
When entering the new development, designed gateways and urban streetscapes
will provide safe and attractive improvements which will offer a first impression of this
new development. Street trees and wide sidewalks with benches and landscaping
will provide areas that are comfortable at all times of day. Architectural features and
site design will be such that provide a sense of style within the new development,
creating a fresh and exciting environment that sets itself apart from surrounding
communities, and provides a one-of-a-kind experience within the heart of Richmond.
If allowed, residential development may be provided to the north of the site, creating
a place for new residents to call home. Architecture and style will closely match the
CONCEPT B
88
style of the new development, providing high-end residential condos that overlook
the adjacent riverfront and landscape. Homesteads will require minimal maintenance
and will provide a location that is tucked away from the busy roads, creating a quieter
location with access to Oak Drive to the north.
Trails and access to the greenspaces below will be provided, connecting new
residences with necessary amenities for passive recreation and interaction with the
natural settings below. Also, a dedicated bike trail will be provided connecting to
the adjacent sites to the northeast and to Sim Hodgins Parkway to the southwest.
A footbridge will connect to Freeman Park to the east, and a connection to the
waterfront will be provided to the south of the site providing a unique amenity to the
site.
Concept C - “Conservation Destination”
The “Conservation Destination” concept embraces the natural surroundings
and dynamics of the site by incorporating the recreational aspect of the existing
Freeman Park and providing additions and enhancements to create a destination for
recreational use. The existing park elements are to be improved to provide a more
refined experience for all guests within the proposed development of the site. While
various communities have embraced the park as it is, the goal for further development
is to provide a park that both Richmond and the surrounding region can be proud of
and to bring people together to develop comradery and competition.
While steep hillsides and wooded terrain provide an obstacle to traditional
development, here they can be utilized to create exciting connections and
recreational uses throughout the site. By preserving a portion of the site, the mature
woodlands and vegetation can be used to offer mountain bike and pedestrian trails,
and the extreme changes in terrain create an ideal location for unique amenities
such as ziplining or constructed climbing walls to feature outdoor entertainment and
recreation that is not commonly found in the region.
One opportunity to promote activity and generate income would be to develop
a regional sports complex within the site. This development could provide year-
round events offering indoor sports leagues and training facilities for both athletes
ESTABLISHING THE FRAMEWORK
CONCEPT C
89
and coaches alike. Indoor courts and fields could be programmed to offer lessons
and education on a wide variety of sports with both local and international interest.
Typical concessions sales and merchandising would also be provided within facilities
such as these to provide additional revenue and income for continued improvements
within the site.
Given the nature and popularity of such development, this would also attract visitors
to participate in league sports, travel teams, and regional events, bringing in a need
for hotels and other services such as restaurants and adjacent entertainment. These
commercial uses would not only benefit from the close proximity of the new facility,
but also the prime visibility along Chester Boulevard. Given an appealing location,
and the convenience of being close to such an anchor development, this area is sure
to be bustling with activity throughout the year.
To connect to Freeman Park to the east, direct access would be provided within the
site by creating a new drive connecting to the adjacent entry along State Road 227.
The additional access will provide better connectivity to the east of the site, and will
provide for easier connection to the proposed sports amenities and waterfront access.
A dedicated bike trail is to provide connectivity to the university campuses and
Middlefork Reservoir to the north, and a potential future connection to the Cardinal
Greenway within a half-mile to the southwest.
In implementing a regional sports complex, this development would attract users of
all ages and provide a catalyst within the city of Richmond to generate new interest
and excitement. By providing a place that is both unique and lively, this development
can become something that the city can rally behind and will provide a unique sense
of pride and excitement to an area that is currently underutilized. While providing
opportunities for recreation and active living, such a development would also drive
business and revenue that can be reinvested in the city of Richmond, providing the
much-needed funds to further invigorate and improve the surrounding community.
90
CRITICAL PATH
STRATEGIES ARE
ESSENTIAL IN
ACHIEVING THE CITY’S
VISION AND GOALS.
91FOLLOWING THE BLUEPRINTWhile the previous chapter, Establishing the Framework, outlines the comprehensive list
of project and program recommendations related to achieving the 10 goal statements, this
chapter provides specificity to the strategies identified as a top priority. These projects or
programs are known as critical path strategies.
Each of the twelve critical path strategies has a full page dedicated to outlining the work
plan. To assist in implementation, related goals, action items, people or organizations to
involve, an estimated timeframe and cost have been identified.
92
FOLLOWING THE BLUEPRINT
CRITICAL PATH STRATEGIES
Critical path strategies are essential in achieving the City’s vision and goals as
outlined within the Richmond Rising: Community Action Plan. All of the projects
and programs are important, but the critical path strategies are actions that should
be initiated and completed first, as top priorities. The critical path strategies are a
combination of short-term, affordable “low-hanging fruit” projects that can create
momentum and near-term progress for the community while others are long-term
projects that may require an extended timeframe, additional funding, or additional
staff resources to complete but are crucial to achieving the community vision and
goals.
Several factors were considered when identifying the critical path strategies, including
Richmond’s top challenges, community input on prioritization, and discussions
with city leaders, and department staff. These strategies range from conducting
further studies, preforming zoning updates, establishing workforce and economic
development incentives, undertaking marketing and branding initiatives, and
improving reporting processes.
Implementation of Richmond Rising: Community Action Plan starts by completing the
following projects and programs:
• Plan for revitalization and redevelopment by completing sub-area plans for
Priority Investment Opportunity Districts.
• Provide development incentives to encourage redevelopment in the City’s
strategic growth areas including but not limited to the Priority Investment
Opportunity Districts.
• Update the City’s Unified Development Ordinance to align with the
comprehensive plan strategies and future land use map.
• Complete an inventory of all existing and future workforce development and
training programs for the labor force, and then work with the appropriate
organizations or agencies to promote these opportunities.
• Coordinate with private businesses, quasi-public agencies, and City
departments to create a Citywide Transportation and Capital Improvements
Plan. Following the completion of the plan, review and update it annually.
• Develop a marketing and utilization plan to measure and promote the image,
usage, role, and effectiveness of Richmond’s parks.
• Create a management plan for the Whitewater River and Whitewater Valley
Gorge Park.
• Update the 2009-2013 City of Richmond Parks and Recreation Strategic Plan.
Following a comprehensive update to the plan, review and updated the City of
Richmond Parks and Recreation Plan every five years.
• Consider establishing a zoning district specifically for protection of Richmond’s
wetlands and riparian floodway and floodplain.
• Create a media relations and marketing plan for the promotion of Richmond.
• Complete an Annexation Fiscal Impact and Cost-Benefit Analysis.
• Explore ways to implement an online dashboard to report progress and
accomplishments.
93
How to Use this Document
The following pages are intended to provide specific guidance to the City of
Richmond, and the City’s community partners, on how to implement the identified
critical path strategies. Each of the ten projects/programs has a full page dedicated
to outlining the work plan. To assist in implementation, related goals, action items,
people or organizations to involve, an estimated timeframe and cost have been
identified.
At a more detailed level, it is likely that one strategy may influence multiple goal
statements. Because of this, each goal statement has a corresponding icon. If the
strategy can be directly related to a goal, the icon will be highlighted in BLUE on
the following pages.
As opposed to identifying when to begin the implementation, the timeframe
represents how long the project or program should take to complete, and generally
ranges from 0-3 months to 1-3 years. The estimated cost is relative to the items listed
and ranges from low to high. As an example, completing an inventory of programs
will cost significantly less than hiring a consultant to facilitate a sub-area planning
process or to complete a capital improvements plan. As these critical path strategies
are completed, the City of Richmond should transition to implementing the other
programs and projects identified as high priorities in Chapter 3: Establishing the
Framework.
Public Outreach and Awareness
While some of the proposed projects and programs incorporate public outreach and
engagements as a fundamental step in the planning process, others are focused
internally on the City’s organizational structure and process. In an effort to provide
transparency to the decision-making and implementation process, it is critical that
identified responsible parties’ keep the public informed of the changes and progress
occurring because of the implementation of this plan. All of the identified critical path
strategies will benefit from informing the public of potential changes, anticipated
impacts and benefits, and when the public can expect to see them implemented. By
doing so, it will give community residents and business owners more time to prepare
for the changes, become educated and aware, and potentially mitigate negative
public reaction.
RELATED GOALS
(For quick reference of the full goal
statements, refer to page 37)Land Use & DevelopmentHousing & NeighborhoodsEconomic and Workforce DevelopmentCommunity ServicesTransportation & ConnectivityUtility InfrastructureParks & RecreationEnvironment & SustainabilityCommunity IdentityAdministrative Processes & Procedures
94 RELATED GOALSCRITICAL PATH STRATEGY #1
94
Plan for revitalization and redevelopment by completing sub-area plans for the Priority Investment
Opportunity Districts.
Action Steps Parties to Involve Time Frame Estimated
Cost
Prioritize the PIO districts to determine which area could benefit from a sub-area plan first.
Explore and identity a funding source for the sub-area plan(s).
Develop and Issue a Request for Qualifications (RFQ) to select a consultant, or team of consultants, to assist in the development and
adoption of a sub-area plan.
Upon completion and adoption of the sub-area plan, explore implementation funding for the action items identified in the plan.
General Public
City of Richmond
Infrastructure and
Development
Plan Commission
Common Council
Economic Development Commission
Redevelopment
Commission
Parks and Recreation
Board
Wayne County
Professional Consultant
Center City Development
Corporation
3-6 months Low-Medium
Funding Assistance to Explore: Community Development Block Grant and the Wayne County FoundationRELATED GOALS
95
95 RELATED GOALS95
95 RELATED GOALSCRITICAL PATH STRATEGY #2
Provide development incentives to encourage redevelopment in the City’s strategic growth areas
including but not limited to the Priority Investment Opportunity Districts.
Action Steps Parties to Involve Time Frame Estimated
Cost
Promote cooperative and joint economic development partnerships between Wayne County, Richmond and Centerville by establishing a Joint Economic Development Partnership.
Through regular meetings of the Joint Economic Development Partnership work to identify the redevelopment area(s) of interest and set specific goals and measurable strategies for the area. Note, this
process can be done in conjunction with Strategy 4.
Explore incentive options including but not limited to expanding the Downtown TIF district, establishment of new TIF districts, density
bonuses, and property tax abatements.
Determine which incentives align with the redevelopment goals for the specific area.
Partner with the necessary agencies to structure and implement the incentive(s).
Promote and market the incentive(s) to the business and development community as well as the general public.
City of Richmond Infrastructure and Development
City of Richmond Public Works
Common Council
Redevelopment Commission
Economic Development Commission
Wayne County Economic Development Corporation
IEDC
Wayne County Commissioners & Council
Center City Development Corporation
Wayne County Area Chamber of Commerce
6-12 months Low – Medium (depending on the incentive)
Funding Assistance to Explore: Community Development Block Grant, Tax Increment Financing, Economic Improvement Districts, Community Housing Development Organization, Community Development Corporations, and Low-Income Housing Tax Credits.
96 RELATED GOALSUpdate the City’s Unified Development Ordinance to align with the comprehensive plan strategies and
future land use map.
Action Steps Parties to Involve Time Frame Estimated
Cost
Determine if the City will complete this project in-house or if they would benefit from hiring a private consultant.
If hiring a consultant, develop and issue a Request for Qualifications (RFQ) to select a consultant, or team of consultants, to assist in the development and adoption of the updates to the City’s UDO.
Review the UDO against the comprehensive plan and future land use and transportation maps to identify barriers related to implementation.
Complete a UDO diagnosis to identify strengths, weaknesses, and possible alternative approaches for each goal topic.
Address specific changes as it relates to land uses and place type definitions, land use transitions, redevelopment efforts, residential densities, restricted development within the floodplain, and enhanced code enforcement.
Professional Consultant
City of Richmond Infrastructure and Development
City of Richmond Public Works
Board of Zoning Appeals
Board or Public Works and Safety
Plan Commission
Common Council
1-3 years Medium to High
Funding Assistance to Explore: General revenues from the City of Richmond and other local organizations.
CRITICAL PATH STRATEGY #3
97
97 RELATED GOALSComplete an inventory of all existing and planned workforce development and training programs for the labor
force, and then work with the appropriate organization or agency to promote these opportunities.
Action Steps Parties to Involve Time Frame Estimated
Cost
Promote cooperative and joint economic development partnerships between Wayne County, Richmond and Centerville by establishing a Joint Economic Development Partnership.
Through regular meetings of the Joint Economic Development Partnership work to identify an individual or organization to spearhead this program.
Create a list of organizations that provide or support workforce development opportunities.
Contact each organization to understand both existing and future programs.
Through regular meetings of the Joint Economic Development Partnership determine the best practices for promoting these opportunities and maintaining an updated inventory.
Implement the marketing/ promotion plan for the identified best practices.
Joint Economic Development Partnership
Wayne County- Richmond WorkOne Center
Ivy Tech
Purdue Polytechnic
IU East
Richmond Community Schools
Forward Wayne County
Wayne COunty Economic Development Corporation
0-3 months Low
Funding Assistance to Explore: General revenues from the City of Richmond, Wayne County, Centerville and then any other local organizations.
CRITICAL PATH STRATEGY #4
98 RELATED GOALSCRITICAL PATH STRATEGY #5
Coordinate with private businesses, quasi-public agencies, and City departments to create a Citywide
Transportation and Capital Improvements Plan. Following the completion of the plan, review and update it
annually.
Action Steps Parties to Involve Time Frame Estimated
Cost
Determine if the City will complete this project in-house or hire a private consultant.
If hiring a private consultant, develop and issue a Request for Qualifications (RFQ) to select a consultant, or team of consultants, to assist in the development of the Transportation and Capital Improvements Plan.
Assemble an advisory group of City leaders and department heads to guide the planning process, analysis and development of recommendations.
Invite appropriate businesses, agencies, departments and stakeholders to participate in the planning process through a series of engagement meetings and activities.
Review Richmond’s transportation and utility improvement needs by analyzing the existing condition of each system and the future needs based on the Future Land Use map.
Prioritize the needs of the transportation and utility systems and identity specific projects to improve safety and capacity for each.
Evaluate available funding options and determine appropriate phasing for each prioritized improvement.
Finalize and Adopt the Transportation and Capital Improvements Plan.
Review the Transportation and Capital Improvements Plan annually and preform a comprehensive update every five years.
City of Richmond Infrastructure and Development Dept.
Public Works and Engineering Dept.
Sanitary District
Street Department
Sanitary Commission
Street Tree Commission
Storm Water Management Board
Professional consultant
General public
12-18 months Medium to High
Funding Assistance to Explore: General revenues from the City of Richmond and other local organizations.
99
99 RELATED GOALSCRITICAL PATH STRATEGY #6
Develop a marketing and utilization plan to measure and promote the image, usage, role, and
effectiveness of Richmond’s parks.
Action Steps Parties to Involve Time Frame Estimated
Cost
Assemble an advisory group of City leaders and department heads to guide
the development and implementation of the Park’s marketing plan1.
Inventory all exist parks properties and facilities including the programs and
events that occur within each.
Inventory all existing marketing efforts including but not limited to printed
mailers, flyers or brochures, e-mails, and social media posts. As possible, indicate the approximate reach of each method to establish a marketing and
promotions baseline.
Identify future goals for the marketing effort such as program participant
increase.
Define target markets and population segments.
Determine appropriate marketing tactics such as brochures, posters, events,
social media channels and align these tactics to the target markets and population segments.
Identify necessary resources including materials, manpower and monetary amounts that will allow for implementation of the marketing plan.
Develop a consistent brand for the City of Richmond Parks Department.
Establish partnerships with newspapers, local bloggers, community organizations, etc. and align new and existing partnerships with the resources
necessary for implementation.
Implement marketing strategies and evaluate the success by measuring
progress against the identified goals.
City of Richmond Parks and Recreation Dept.
Parks and Recreation Board
Communications Director
Wayne County
Convention and Tourism Board
3-6 months Low
Funding Assistance to Explore: Parks funds, general revenues from the City of Richmond, and the Wayne County Foundation.
1 Please note this Critical Path Strategy could be completing in conjunction with a Parks and Recreation Master Plan update
100 RELATED GOALSCRITICAL PATH STRATEGY #7
Create a management plan for the Whitewater River and Whitewater Valley Gorge Park.
Action Steps Parties to Involve Time Frame Estimated
Cost
Determine if the City will complete this project in-house or hire a private consultant.
If hiring a private consultant, develop and issue a Request for Qualifications (RFQ) to select a consultant, or team of consultants, to assist in the development of the management plan.
Assemble an advisory or steering committee to guide the development and implementation of the Management Plan.
Establish a public engagement strategy to ensure that the City’s key stakeholders and the general public are included within the planning process.
Working with the advisory group, identify the specific vision and goals for the project area.
Working with the advisory group, complete a SWOT analysis and an inventory of current conditions
Working with the advisory group and relying on public comment,
determine strategic steps to protecting and preserving the nature features while capitalizing on the recreational opportunities.
Adopt and implement the Whitewater River and Whitewater Valley
Gorge Management Plan.
Review the Plan annually and perform a comprehensive update every five years.
City of Richmond Infrastructure and Development Dept.
Parks and Recreation Dept.
Parks and Recreation Board
Plan Commission
Common Council
Whitewater Valley Gorge Alliance
Army Corps of Engineers
Professional Consultant
General Public
6-12 months Medium - High
Funding Assistance to Explore: Land and Water Conservation Fund (LWCF) Program, as administered by the Indiana Department of Natural Resources (DNR).
101
101 RELATED GOALSCRITICAL PATH STRATEGY #8
Update the 2009-2013 City of Richmond Parks and Recreation Strategic Plan. Following a comprehensive update
to the plan, review and update the City of Richmond Parks and Recreation Plan every five years.
Action Steps Parties to Involve Time Frame Estimated
Cost
Determine if the City will complete this project in-house or hire a private consultant.
If hiring a private consultant, develop and issue a Request for Qualifications (RFQ) to select a consultant, or team of consultants, to assist in the development of the Parks and Recreation Strategic Master Plan.
Assemble an advisory group of City leaders and department heads to guide the planning process, analysis and development of recommendations.
Inventory all existing parks properties and facilities including the programs and events that occur within each.
Identify the specific vision and goals for the project area.
Working with the advisory group and relying on public comment, determine strategic action steps for enhancing existing facilities and
expanding, as need.
Adopt and implement the Parks and Recreation Strategic Master Plan.
Review the Plan annually and perform a comprehensive update every five years.
City of Richmond Parks and Recreation Dept.
Parks and Recreation Board
Infrastructure and Development Dept.
Wayne County Convention and Tourism Board
6-12 months Medium
Funding Assistance to Explore: Park funds, general revenues from the City of Richmond, and other local organizations.
102 RELATED GOALSCRITICAL PATH STRATEGY #9
Create a media relations and marketing plan for the promotion of Richmond that incorporates both
online platforms and paper methods.
Action Steps Parties to Involve Time Frame Estimated
Cost
Assemble an advisory group of City leaders and department heads to guide the development and implementation of the Richmond’s marketing plan.
Inventory all existing marketing efforts including but not limited to printed mailers, flyers or brochures, e-mails, and social media posts. As possible, indicate the approximate reach of each method to establish a marketing and promotions baseline.
Identify future goals for the marketing effort such as program participant increase.
Define target markets and population segments.
Determine appropriate marketing tactics such as brochures, posters, events, social media channels, online dashboards, and align these tactics to the target markets and population segments.
Identify necessary resources including materials, manpower and monetary amounts that will allow for implementation of the marketing plan.
Develop a consistent brand for the City of Richmond.
Establish partnerships with newspapers, local bloggers, community organizations, etc. and align new and existing partnerships with the resources necessary for implementation.
Implement marketing strategies and evaluate the success by measuring progress against the identified goals.
General Public
Community Development Coordinator
Communications Director
Mayor's Office
City of Richmond Infrastructure and
Development Dept
Wayne County Tourism Bureau
Wayne County Convention and Tourism Board
Professional consultant
3-6 months Low - Medium
Funding Assistance to Explore: General revenues from the City of Richmond, local Chamber of Commerce, and other economic development organizations.
103
103 RELATED GOALSCRITICAL PATH STRATEGY #10
Establish a zoning district specifically for protection of Richmond’s wetlands, floodway, and floodplain.
Action Steps Parties to Involve Time Frame Estimated
Cost
Coordinate this zoning update with the UDO diagnosis described on page 96.
Explore how other communities have used similar zoning districts.
Determine the areas that could benefit from further protection from undesirable development in environmentally sensitive areas.
Work with a zoning professional or lawyer to draft the zoning
regulation language and district boundaries.
Amend the UDO to incorporate the zoning district.
City of Richmond Infrastructure and Development
Plan Commission
Common Council
Board of Zoning Appeals
Professional consultant
1-3 years Medium
Funding Assistance to Explore: General revenues from the City of Richmond and other local organizations.
104 RELATED GOALSCRITICAL PATH STRATEGY #11
Complete an Annexation Fiscal Impact and Cost-Benefit Analysis.
Action Steps Parties to Involve Time Frame Estimated
Cost
Develop and issue a Request for Qualifications (RFQ) to select a consultant, or team of consultants, to assist in completion of the Annexation Fiscal Impact and Cost Benefit Analysis.
Assemble an advisory group of City leaders and department heads to guide the planning process, analysis and development of recommendations.
Identify areas of land or development scenarios in which the City would like to evaluate.
Review existing revenue and expenditures for the current year
Develop a model to determine the potential impacts of the proposed annexed land area.
Compare estimated revenues and costs and determine net fiscal impact on the community.
Professional Consultant or Lawyer
City of Richmond Infrastructure and Development Department
Finance Department
Law Department
6-12 months Medium - High
Funding Assistance to Explore: General revenues from the City of Richmond and other local organizations.
105
105 RELATED GOALSCRITICAL PATH STRATEGY #12
Implement an online dashboard to report progress and accomplishments.
Action Steps Parties to Involve Time Frame Estimated
Cost
Research how other communities are using online dashboards for reporting progress and achievements such as the GreenStep Cities program in Minnesota.
Identify which City-wide programs/ processes to monitor and establish a metric to use when measuring implementation steps.
Identity a dashboard model to replicate based on the programs/ processes identified and the metrics to use when reporting.
Design and implement the dashboard. Ensure that the new digital dashboard integrates with all existing City platforms.
Build awareness of the new community tool by promoting it through established marketing programs and channels.
Update the dashboard on a monthly basis. Interim updates can also be
made when significant progress has occurred.
City of Richmond Infrastructure and Development Dept.
Mayor’s Office
Common Council
General Public
Community Development Coordinator
Communications Director
0-3 months Low
Funding Assistance to Explore: General revenues from the City of Richmond and other local organizations.
106
UPDATING THE PLAN
The following measures should be taken to ensure that the recommended strategies
and action steps continue to move the community toward its vision; but also that the
plan continues to accurately reflect the community’s collective vision and values over
time.
• Prepare an annual report that highlights how the plan was used and the
effectiveness of the contents, paying particular attention to the implications of
how one part of the plan affects or otherwise relates to another.
• Establish a five-year review and update process by which to regularly examine
and revise the contents of the plan. Of particular importance are: updates to the
socio-demographic information, making sure that each of the policy objectives
identified are still relevant; making use of any newly defined best practice in
land use or transportation planning, or zoning; or simply aligning the content of
the plan with any changes to the local regulatory environment.
• Establish a community engagement process, complete with inter-local
cooperation, by which to complete the first two measures.
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108
SUPPLEMENTAL
INFORMATION
109
This chapter houses additional information including the Community Dictionary and the
Richmond Rising: Existing Conditions Report. The Community Dictionary is intended to
define topic-specific terms and phrases that appear throughout the comprehensive plan.
The Existing Conditions report was created as an interim deliverable. It is an inventory
of what the community has to offer in terms of people, places, and services. In some
instances, the inventory includes past, present, and future projections to help identify
trends and inform the project team of any challenges the community is facing.APPENDIX
110
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111
COMMUNITY DICTIONARY
Adequate/Better Housing
More housing options; a greater number of price points, types of units, locations for
housing units, and housing sizes for every life stage
Attractive Environment
Fewer eyesores in terms of vacant and abandoned buildings, illegal dumping, and
unkempt properties
Community Benefit
Anything that benefits an entire community (directly or indirectly), rather than a single
individual
Communication
Open and transparent government processes.
Desired Amenities
More active and passive recreational opportunities for a variety of users; as well as
additional opportunities for dining, entertainment and lodging; hospitality
Diverse Economic Base
Increase the number, type (e.g., commercial and industrial, but also skilled laborers
and office professionals), and sizes (e.g., large corporations and start-up companies) of
businesses that pay a self-sustaining wage.
Diversified Tax Base
Increase the number and/or type of ways to collect revenue such as exploring
annexation, tax districts, and various land uses.
Good Jobs
More job opportunities at all levels, offered by employers of all sizes
Land Use Balance
Plan for change; guide growth and development
Natural Areas
Undistributed land such as forests or grasslands, a conservation area that is home to
diverse animal and plant species.
Open Space
A designated area for parks and recreation, undeveloped area that is accessible to the
public.
Proactive
Deal with things now so as to one day become less reactionary; less deferred
maintenance
Quality of Life
Improved circumstances both in terms of the built environment and the city’s residents
Strong Education System
Institutions for lifelong learning; from Pre-K through adult education and including
more in terms of technical and vocational training
Uncontrolled Development
The unpredictable nature of most any type of development that occurs in the absence
of a larger vision or plan that is often further complicated because existing polices and
regulations aren’t universally applied.
Urban Reforestation
The practice of planting trees, typically on a large scale, in urban environments.
COMMUNITY
112
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EXISTING CONDITIONS REPORT
City of Richmond Comprehensive Plan
Existing Conditions Report
RICHMONDRISING
CONTENTS
Section 1:
Introduction
Section 2:
Demographics, Housing, and Employment
Section 3:
Existing Land Use
Section 4:
Existing Neighborhoods and Historic Districts
Section 5:
Existing Transportation
Section 6:
Natural Features
Section 7:
Parks and Recreation
Section 8:
Community Services
Section 9:
Existing Redevelopment Opportunities
Section 10:
Key Findings
EXISTING CONDITIONS
116 RICHMOND RISING
An existing conditions report is intended to
answer the question, “Where are we now?” It is
an inventory of what the community has to offer
in terms of people, places, and services. In some
instances, the inventory includes past, present,
and future projections to help identify trends and
inform the project team of any challenges the
community is facing. The findings of this chapter,
along with public engagement, will serve as the
foundation for the recommendations that will be
included within the comprehensive plan.
The following section provides a brief overview
of the community’s history, recognizes the
regional context, and summarizes the past
planning documents that were reviewed as part
of this planning process.
COMMUNITY HISTORY
In 1806, Richmond was founded by North
Carolina Quakers who settled along the
Whitewater River. Because of Richmond’s prime
location along the river, the area served as a
trading and transportation center. Richmond
is still home to several Quaker institutions,
including Friends United Meeting, Earlham
College, and the Earlham School of Religion. The
City of Richmond was not officially incorporated
until 1840, with John Sailor being elected as
the first mayor. The City started to capitalize
on its geographic location that offered many
opportunities as a trading and transportation
center. As a result, Richmond was named the
Wayne County seat in 1873.
In the 19th century, the federal government built
its first major improved roadway known as the
National Road. Construction of the roadway
began in Indianapolis in 1828 and expanded
east and west toward Richmond and Terre
Haute. The presence of the National Road, in
addition to Richmond’s prime location along
the Whitewater River, provided the community
with strong assets supporting its growth during
this time period. The National Road was a
major route for pioneers traveling westward;
the Richmond section became known as
“Millionaire’s Row” due to the fact that it had the
most millionaires per capita in the U.S., including
American Architect John Hasecoster, piano and
phonograph manufacturer Henry Gennett, and
lawn mower manufacturer Elwood W. McGuire.
The manufacturing companies that located
along the National Road played a major role
in the history of Richmond. For example, lawn
mower manufacturers such as Davis, Mo-to
mower, Dille-McQuire, and F&N helped generate
a center for manufacturing of lawn mowers from
the last of the 19th century through the mid-20th
century. As a result, during this period Richmond
became known as the “lawn mower capital.”
Starr Piano Company is another example of a
manufacturing company that played a major
role in the history of Richmond. In 1893, the
Starr Piano received national recognition at
the Colombia Exposition in Chicago. During
the same year, Henry Gennett joined Benjamin
117EXISTING CONDITIONS REPORT
Starr and the company started to take off,
creating a musical empire for the manufacture
of phonographs, records, and pianos. Starting
in the 1920s, the Gennett Studio became a
popular destination for jazz artists looking
to record. The Friars Society Orchestra, later
known as the New Orleans Rhythm Kings, and
Bix Beiderbecke with the Wolverines, among
other artists, made some of their first records
in Richmond. This musical empire influenced
Richmond enough that the City is sometimes
referred to as the “cradle of recorded jazz.”
Richmond was home to premier rose growers
and marketers of cut roses, such as Hills Roses,
as far back as 1881, eventually earning the
City the moniker “Rose City.” The rose industry
accounted for the sale of millions of roses
annually in the U.S. and around the world until
the industry scattered in 2007. In 1987, the first
public rose garden was planted to honor the
rose heritage. The Richmond Rose Garden,
the Richmond Friendship Garden and E.G. Hill
Memorial Rose Garden still exist today in Glen
Miller Park.
Today, the City of Richmond is in pursuit of
creating a new identity through a movement
called, “Richmond Rising.” The City is
undergoing a rebranding process that will
incorporate the phrase Richmond Rising.
Rebranding began in response to the
community looking for something to connect
with and relate to after the previous tag lines
were no longer relevant to today’s Richmond.
The phrase Richmond Rising is designed for
people to identify with as a new city theme.
The process took place in the Mayor’s office
and involved 100 people meeting with City staff
members to review it in person and an online
community survey that received 800 responses.
This comprehensive planning process serves
as a launching pad for the movement and
rebranding efforts but Richmond Rising is
intended to live on long after this process.
Early on in this comprehensive planning
process, the public was asked, “What does
Richmond Rising mean to you?” Some common
answers included:
• Building a community that citizens support
and believe in;
• Developing and growing- a rebirth of
Richmond;
• Community engagement and
inclusiveness;
• Resiliency;
• Old and new working together to create
a long-term prosperous community; and
• Rising from the City’s struggles.
EXISTING CONDITIONS
118 RICHMOND RISING
REGIONAL SETTING
Today, Richmond is a city of approximately
36,000 and is often referred to as the Eastern
Gateway to Indiana. Its location on the
border of Indiana and Ohio makes it easily
accessible to Dayton, Ohio; Indianapolis,
Indiana; and Cincinnati, Ohio. With Interstate
70 nearby and U.S. 40 and 27 running through
the city, Richmond is well-suited for business,
cultural, tourism, and economic development
opportunities. Richmond is the seat of Wayne
County, and is surrounded by Randolph, Henry,
Fayette, Rush, and Union County in Indiana. To
the east of Wayne County, Preble and Drake
County are situated just across the state line.
Of particular importance to the Richmond
Comprehensive Plan is the Eastern Indiana
region comprising Fayette, Randolph, Rush,
Union, and Wayne County. Many years ago,
communities competed with one another for
business retention and attraction. In recent
years, agencies, such as the Indiana Economic
Development Corporation, have realized
that regionalism is the key to successful
economic development efforts. After all, most
communities are faced with the same issues and
opportunities as the other communities nearby.
Regional collaboration empowers elected and
appointed officials and community leaders to
work together to tackle these multi-jurisdictional
challenges while bringing more resources to the
table when thinking about future opportunities.
The City of Richmond has already been planning
and operating with the needs of the region in
mind. The community’s involvement in the Stellar
Communities Program demonstrates a strong
commitment to regionalism.
Stellar 2018: Creating Opportunities and
Transforming Communities
In 2013, Richmond was designated a Stellar
Community. The Stellar Communities Program
is a multi-agency partnership designed to
recognize smaller communities, and now
regions, that identify comprehensive and
collaborative plans for community and economic
development projects and activities.
Starting in 2018, the Stellar Communities
Program shifted its focus to regionalism. Led by
the Eastern Indiana Regional Plan Commission--
an economic development group comprising
Wayne, Randolph, Union, Fayette, and Rush
counties -- the region submitted an application
for the new regional Stellar designation and
was selected as a finalist. The Eastern Indiana
Transforms plan established six regional
goals centered on collaboration, quality of
plan, workforce development, infrastructure,
healthcare, and agriculture. The primary goal
was attracting, retaining, and developing a
trained workforce for the Eastern Indiana Region.
Of the eight projects outlined in the regional
plan, one of them – the Townsend Townhomes
-- was located directly in Richmond. The project
could create an affordable housing option that
allows residents and students to complete their
degrees or certifications and enter/advance in
the workforce.
Although the Eastern Indiana region was not
selected for the Stellar program in 2018, it is still
important to understand the current conditions of
the region. The graphics to the right provides a
brief overview of the regional demographics. By
documenting this now, the region will be able to
understand where the shifts occurred following
this planning process.
119EXISTING CONDITIONS REPORT
Eastern Indiana
Regional
Snapshot 2018 Population
$46,606
Median Household
Income
64,489
Occupied
Units
4,767 56,470
Establishments Employees
14%
13%
of employees work in
the healthcare industry
of employees work
in the manufacturing
industry
Owner
Renter
Vacant
60%
26%
14%
75%
Built before
1970
78%
Single-Family
Detached BusinessesKENTUCKYHousing Stock
140,961
JobsHousing Dayton
EXISTING CONDITIONS
120
2005
PAST PLANS AND STUDIES
2006
Richmond Comprehensive Plan
2006
Downtown Strategic Plan
A document that was being used as a policy
guide for making informed decisions that
affect the community, the City’s previous
comprehensive plan identified economic
development, job creation, physical
appearance of the community, community
services, community resources, and sense of
City identity and pride as the six most pressing
issues during the time the plan was completed.
2011
Transportation Plan
The plan establishes a vision to “provide
a framework for an integrated multi-
modal transportation system that will
guide City policies and priorities and
improve the quality of life in Richmond.”
The framework is one that centers on the
creation of a complete streets system
where transportation planning evolves to
become less automobile centric.
Created to provide the City of Richmond with a clear
understanding of the downtown’s goals, objectives, and
opportunities for inclusion in the 2006 Comprehensive Plan,
the strategic plan outlines urban design principles to guide
development. Additionally, the plan establishes several core
principles that can help foster sustainable health and vitality of
downtown Richmond focused on:
• Downtown pedestrian environment and experience,
• Prioritizing development areas,
• Downtown as a cultural and entertainment center of the
region,
• Enhanced connectivity through infill development and
transportation options,
• Whitewater Gorge as Richmond’s top natural asset, and
• Importance of historic structures preservation.
2009
Parks and Recreation Master Plan
A guide for providing parks and
recreation in and around the City of
Richmond, this documents action plan
outlines strategies for five categories
including facilities, services, markets,
community, and stewardship.
Richmond has a long and rich tradition of community planning. This timeline serves as a graphic representation of the efforts put forth by the
community to guide, and prepare for, future development and redevelopment opportunities. While each plan was thoroughly reviewed for
the wealth of knowledge it offers, this timeline serves to highlight the overarching purpose of each document.
121
2020
2013
Stellar Strategic Investment Plan
A planning process that resulted in the community
earning the Stellar Communities designation in 2013.
With a mission statement to, “Positively enhance
the quality of life for the entire region by making
improvements in the district, leveraging strategic
partnerships, and creating gateways to surrounding
emerging districts for sustainable quality living and
economic vitality.” The strategic investment plan outlines
10 projects including the creation of Elstro Plaza,
rehabilitation of the former YMCA building into Music
City Place senior apartments, pedestrian and bicycle
safety improvements, facade work, owner-occupied
home rehabilitation, and development of downtown
living spaces.
2015
Bike and Pedestrian Master Plan
This plan builds upon the success of
the Cardinal Greenway and aims to
provide a complete system of bicycle
and pedestrian facilities. The purpose
is two-fold: first to further non-vehicular
transportation and recreation, and
second to improve the local quality of life
offered by the City of Richmond.
2016
Regional Economic Development Plan
This document aims to “build better places to live, work, and play through
collaboration, planning, and cooperation [in the use of] public and private
funding.” The plan identifies six goals that relate to:
• Improving the climate for the Advanced Materials Manufacturing cluster,
• Recognizing the region’s deep agricultural heritage,
• Recognizing the importance of healthcare as both a regional employer and
as a prerequisite for population growth,
• Addressing the need for infrastructure improvements to accomplish the other
goals in the plan,
• Understanding that the quality of place determines whether current residents
will stay and if new residents will move into the area, and
• Recognizing the importance of building trust, engaging in meaningful
communication, and collaborating fully.
2018
Eastern Indiana Transforms
Regional Economic Development
Plan
Submitted as part of the Eastern Indiana Stellar
application, the Stronger Economies Together
(SET) plan outlined six goals to transform the
region through collaboration, quality of place,
workforce development, infrastructure, healthcare,
and agriculture. Additionally, there were eight
proposed projects included in the plan that had
been chosen due to their connection to attraction,
retention, and development of talent. One of the
proposed projects, Townsend Townhomes, was
planned for the City of Richmond.
EXISTING CONDITIONS
122 RICHMOND RISING
DEMOGRAPHIC AND MARKET
ANALYSIS
To effectively guide community and economic
development policies and decisions, local
policy and decision-makers will often take an
inventory of current conditions and trends at
the local, regional, state, and national level.
An analysis of Richmond’s demographic and
socio-economics data was completed to
establish an understanding of the community
characteristics, growth patterns, and economic
trends. This analysis will guide the planning
process and serve as the foundation for many of
the recommendations presented throughout the
comprehensive plan.
The analysis focuses on three overarching topics
including population, housing market, and
employment. All data was obtained from ESRI
Business Analyst and the U.S. Census Bureau,
unless otherwise noted.
Demographic Trends
Richmond’s key demographic findings can be
summarized as follows:
Richmond is getting older.
• Today, the median age for residents in
Richmond is 40 years old. Similar to Wayne
County, this has been slowly increasing
since 2000 and is expected to continue
through 2023.
DEMOGRAPHIC SUMMARY
2000 2010 2018 2023
Projection
Percent Change
(2018-2023)
POPULATION
Richmond, IN 39,236 36,918 36,191 35,465 -2.0%
Wayne County, IN 71,097 68,917 67,190 65,667 -2.27%
Indiana 6,080,485 6,483,802 6,762,374 6,939,633 2.6%
MEDIAN AGE
Richmond, IN 36 38.3 40.0 41.0 --
Wayne County, IN 37.7 40.2 41.9 42.8 --
Indiana 35.2 36.9 38.2 39.0 --
MEDIAN HOUSEHOLD INCOME
Richmond, IN $30,210 $34,736 $40,213 $46,039 14.0%
Wayne County, IN $34,885 $41,123 $45,817 $52,366 14.3%
Indiana $41,567 $47,697 $53,531 $61,015 14.0%
HOUSEHOLDS
Richmond, IN 16,309 15,140 14,813 14,503 -2.1%
Wayne County, IN 28,469 27,551 26,832 26,211 -2.3%
Indiana 2,336,306 2,502,154 2,607,434 2,674,560 2.6%
RACE AND ETHNICITY
Richmond, IN
White 86.8%84.0%83.1%81.9%-1.2%
Black 8.9%8.6%8.5%8.5%0.0%
American Indian 0.3%0.3%0.3%0.3%0.0%
Asian 0.8%1.1%1.2%1.3%0.1%
Pacific Islander 0.1%0.1%0.1%0.1%0.0%
Some other Race 1.1%1.9%2.1%2.4%0.3%
Two or more Races 2.1%4.0%4.6%5.4%0.8%
123EXISTING CONDITIONS REPORT
Richmond has a lower median household
income relative to Wayne County and the rest
of the state.
• Richmond has a median household
income of $40,213, which is over $5,000
dollars less than the median household
income of $45,817 in Wayne County, and
over $13,000 lower than the state median
household income.
• The per capita income, the average
income earned per person, in Richmond is
$23,402.
Richmond’s population is declining, along with
Wayne County’s.
• Richmond’s 2018 total population is
estimated to be over 36,000 people,
making it the largest city in Wayne County.
• The City is expected to experience a 2
percent decrease in population over the
next five years, which is slightly less than
the expected decrease of 2.25 percent for
Wayne County.
• As of 2018, Richmond has 14,813
households; by 2023, this number is
expected to decrease by 2 percent,
leaving 14,500 households in Richmond.
Wayne County is expected to experience
a relatively similar decrease from 26,832
households in 2018 to 26,211 households
in 2023.
• Richmond has not experienced any major
shifts in its racial composition in the last
several years. The percentage of residents
who identify as “white” is expected to
decrease by 1.2 percent while people
of “some other race” may increase by
0.3 percent and people of “two or more
races” may increase by 0.8 percent.
EXISTING CONDITIONS
124 RICHMOND RISING
Housing Market
This section provides an overview of the housing
market in Richmond, including total units,
housing occupancy, and year built. All data was
obtained from the U.S. Census Bureau and ESRI
Business Analyst. The key findings are as follows:
Richmond’s housing stock is older and less
valuable relative to Wayne County.
• Nearly 70 percent of the current housing
stock in Richmond was built before 1970,
meaning the units were constructed before
modern building codes went into effect.
• Richmond’s median home value in 2018
was $92,590 while the median home value
in Wayne County was $105,503.
The vacancy rate is high and rising.
• The total number of housing units in
Richmond has stayed relatively consistent
since 2000 shifting only by 20 units, while
Wayne County had a 2.5 percent increase
in housing units between 2000 and 2010
and held steady through 2018 with 31,242
units.
• As of 2018, the City of Richmond had
17,684 housing units with 50 percent owner
occupied, 34 percent renter occupied, and
16 percent vacant.
•
• When compared to Wayne County,
Richmond’s vacancy rate is 2 percent
higher than the county with 14 percent of
housing units being vacant.
• The combination of stable numbers of
housing units with declining numbers of
households (see demographic section,
above) means that vacancy rates will
probably increase over the next few years.
Structures Built Percentage
2017 Total housing units 100%
Built 2014 or later 0.2%
Built 2010 to 2013 2.4%
Built 2000 to 2009 3.8%
Built 1990 to 1999 6.8%
Built 1980 to 1989 6.5%
Built 1970 to 1979 11.4%
Built 1960 to 1969 12.3%
Built 1950 to 1959 15.4%
Built 1940 to 1949 10.3%
Built 1939 or earlier 30.9%
125EXISTING CONDITIONS REPORT
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EXISTING CONDITIONS
126 RICHMOND RISING
Employment and Industry
This section details employment information,
including total number of workers, businesses,
major employers, industry break down, and
unemployment rate. All data was obtained
from the U.S. Census Bureau and ESRI Business
Analyst. Key findings include:
Most of Richmond’s employment and labor
force is engaged in the service and retail
industries.
• Richmond has over 1,600 businesses that
employ nearly 28,000 workers from both
the city and the surrounding county. Top
industries include services and retail trade.
• The service industry – including lodging,
automobile, motion pictures, amusements,
health, legal, educational institutions, and
other services – makes up the highest
percent (40 percent) of businesses and
employs the largest percentage (35
percent) of employees in Richmond.
• Richmond itself has a total employed
population of 14,696 residents, all of which
are at least 16 years of age. Of those
nearly 15,000 workers, over 50 percent
work in the service industry. The second
greatest industry is manufacturing with
18 percent of the population working in
factories.
Richmond serves as a regional employment
center.
• The top 10 employers for Wayne
County, ranging from government
services, healthcare, and education
to manufacturing, are all located in
Richmond.
• As of 2015, commuting trends reveal that
9 percent of Wayne County’s workforce
is commuting into the county each day,
mostly from Ohio.
• As of 2015, commuting trends reveal that
5.3 percent of Wayne County’s labor
force travels outside of Wayne County
for employment. The majority of these
commuters are going to Ohio to work.
Richmond’s employment base and labor force
are contracting.
• The latest (2017) countywide total
employment statistic of 38,721 represents
a substantial decline (~10%) from its 2001
level of 43,099.
• As of 2018, Richmond’s unemployment
rate was 4.4 percent, which is 1.2 percent
higher than Wayne County and 0.9 percent
higher than the state of Indiana.
• Between 2010 and 2017, Richmond’s labor
force decreased by 2 percent. Wayne
County experienced a very similar decline
of 2.3 percent. Although Indiana as a
whole, experienced a 25 percent increase
in labor force during the same time frame.
INTO
WAYNE
OUT OF
WAYNE
S A ST
N A ST MAIN ST
RICHMOND
MUNICIPAL
AIRPORT INDIANA / OHIO STATE LINECENTERVILLE
NEW PARIS
NW L ST
PEACOCK RD
W MAIN ST
S L ST
S E ST
S Q ST GARWOOD RDHENLEY RDNW 5TH STSALISBURY RDW INDUSTRIES RDFLATLEY RDROUND BARN RDW WEBSTER RD CART RDTURNER RD
FARLOW RDSALISBURY RDAIRPORT RDGATES RD
SPRING GROVE
Indiana University East- 350 Employees
Reid Health- 2600 Employees
Primex Plastics Corp.- 420 Employees
Color Box Inc.- 370 Employees
Earlham College- 390 Employees
City of Richmond- 400 Employees
Wayne County- 400 Employees
Richmond Community Schools- 730 Employees
Belden Wire and Cable- 700 Employees
127COMPREHENSIVE PLAN
WAYNE COUNTY TOP EMPLOYERS
North
128 RICHMOND RISING
By reviewing statistical trends in populations, projections can be made about the future growth of a community. These
projections can then be used to inform communities about their future infrastructure, housing, employment, and public needs
and services.
DEMOGRAPHICS
The data summary above reveals that Richmond has been declining in total population and the overall number of
households, and is expected to continue doing so. Because of this decline, Richmond can experience challenges relating to
land use planning and development such as:
• The inability to support or attract many of the establishments that residents desire to have available locally.
• Lower income tax levies, which constitutes a primary source of funds for everything from roads and utilities to police
and economic development.
Compared to Wayne County and the state of Indiana, Richmond has a low median household income. This can directly
impact the built environment through the following land use and development channels:
• The inability for residents to afford maintenance on their homes.
• The inability for residents to spend money on “extra” things like entertainment and leisure.
As the population continues to get older, there will be several implications on land use planning and development such as:
• Access and proximity to amenities and healthcare services becomes a critical component to where a resident can live.
• Healthcare access may need to expand past a general physician to include physical therapy, specialists, and
treatment facilities.
• An increase in demand for multimodal options for residents with the inability to operate a vehicle. This becomes even
more important because 6.5 percent of workers in Richmond do not own a vehicle.
• An increase in demand for a mix of housing types, specifically mixed-use developments and individual housing units
that are best suitable for the aging population. Key considerations should include walkability, ADA accessibility, and
access to convenient goods and services.
LAND USE AND DEVELOPMENT IMPLICATIONS
129COMPREHENSIVE PLAN
HOUSING
Housing plays a major role in the success of a community.
Next to employment, the availability and quality of housing
is one of the greatest selling points of a community. Data
reveals that Richmond is facing many challenges within
its housing stock. These challenges create land use and
development implications including:
• Older homes can pose very specific public safety
hazards, e.g., added challenges for firefighters, simply
because modern building codes didn’t go in effect
until the 1970s.
• Older housing units pose challenges for
redevelopment because rehabilitation/renovation
costs usually exceed what could be supported in sales
or rent.
• High vacancy areas can be tied to criminal activity
and create safety concerns.
• High vacancy areas can often generate negative
perceptions about an area, making it hard to attract
new (re)development.
• Older homes often have public health risks associated
with their construction, including lead-based paint
(LBP) and/or asbestos.
• Richmond is lacking in the middle range and higher-
end price points for housing. This could mean workers
with a healthy salary are having to look for housing
options elsewhere.
EMPLOYMENT
Richmond’s future prosperity will depend on its ability
to develop both businesses and a workforce. The data
presented above, along with public feedback from
community engagement, reveals that Richmond’s top
challenges lie within this category.
Based on Richmond’s median household income and top
employment industries, it can be concluded that existing job
opportunities primarily fall within the relatively lower wage
brackets. Because of this, Richmond is experiencing:
• An increase in poverty
• Fewer families that can afford dependent care
• Fewer stable jobs
• Fewer employer-sponsored healthcare plans
• An inability to attract retail and housing development
• An inability to retain skilled workers (brain drain)
Working to address or remove any barriers to the following
challenges will increase the likelihood for Richmond to
attract and retain professionals and skilled laborers to live
and work in the community:
• Career opportunities that offer lifelong learning and
training opportunities, healthcare, and 401k benefits
• Quality childcare opportunities for working parents
and caregivers
• Quality housing of all types and price points
• Quality of life amenities such as arts and cultural
opportunities, entertainment options, parks, and trails.
EXISTING CONDITIONS
130 RICHMOND RISING
EXISTING LAND USE
Land use is an important component of this
existing conditions report for two reasons. First,
reviewing development patterns and completing
an inventory of the types and mix of current land
uses can show where concentrations of similar
activity exist. Secondly, the analysis can indicate
areas in which to target development and
redevelopment efforts.
Land Area- Past and Present
Richmond consisted of only 11.6 square miles in
1960. Over the next 30 years (between 1960 and
1990), the City’s area grew by over 50 percent to
become approximately 18 square miles. By 2000,
both land area and population growth had
started to shift. While the land area increased
to 23 square miles, a 23 percent increase in 10
years, its population had only slightly increased.
It can be concluded that this happened because
of typical urban sprawl – people started moving
away from the center of the city towards its
developing fringe, forcing the city to expand to
encompass these areas, but this expansion led
to a decrease in population density. Nearly 20
years later, Richmond remains similar in size,
covering 24 square miles of land.
Why is such a focus on land area significant?
Simply put, the quality and cost of many urban
services are affected by the size of the area
served. More urban area translates into more
miles for police and fire vehicles to travel,
more streets to be paved and plowed, more
sanitary sewer pipeline that needs to be
laid, etc. However, the rising costs of quality
urban services have not been offset with a
corresponding increase in the number of tax-
paying households to fund the services.
Of particular importance to the comprehensive
plan is that the City of Richmond has extra
territorial jurisdiction (ETJ) for 2 miles outside of
the incorporated boundary. This gives the City
planning and zoning authority over land within
the 2 mile fringe surrounding the incorporated
area. This area, making up an additional 34
miles of land, is highlighted on the study area
map in the medium shade of gray.
What is extraterritorial
jurisdiction?
It is the legal ability of a government
to exercise authority beyond its normal
boundaries. Therefore, Richmond has
zoning, land use, and development
approval jurisdiction for 2 miles outside
of the incorporated boundary.
Communities with ETJs typically have
fewer land use conflicts and density
problems on their developing fringe
than those without, because they
are able to regulate the types and
densities of uses going into those areas,
regardless of whether they are located
within the City’s corporate boundary or
not.
131EXISTING CONDITIONS REPORT
Land Use Categories
Land use is the term used to describe the type of
activity that occurs on a parcel or in a structure
located on a parcel. This section provides a
high-level description of each land use category,
with the language being pulled from the 2006
Richmond Comprehensive Plan. The following
land use categories are illustrated on the map.
Agricultural/Residential:
This category includes land for farming or for the
raising of livestock. Agricultural activities include
crop propagation, dairying, stock animal, and
poultry. This could include residential uses on
site– usually single-family detached residences.
Single-Family Residential:
Land that is developed with single-family
residential units. Single-family dwellings are
detached and can be part of a subdivision
development. The structures do not exceed three
stories in height.
Multi-Family Residential:
Multi-family residential areas include multiple
family residences within one structure. These
include duplexes, units with three family or more
dwelling units, stand-alone apartment buildings,
townhouses/condominiums, and mobile homes/
trailers.
Commercial:
This category includes a wide range of
commercial uses and service uses including
retail, service businesses, restaurants,
professional offices, and medical-related uses
(except hospitals). Commercial land uses
should generally be located away from or
buffered from residential districts due to their
high volume of traffic, potential to generate
noise, (sometimes) late hours of operation, and
possible obtrusive lighting or other adverse
constraints. The possible exception to this would
be mixed-use commercial spaces, which require
higher densities and a walkable environment to
successfully operate.
Industrial/Transportation/Landfill/
Manufacturing:
This broad category includes areas deemed
appropriate for light/heavy industrial uses that
are generally not compatible with residential
development. These uses include heavy
manufacturing uses whose primary objective
is for compounding, processing, packaging
and assembling of products, construction,
contracting, transportation, utilities, wholesaling,
warehousing, and mineral extracting uses.
This category also includes utility-related uses
for electricity, gas, and water services such as
power plants, sewage treatment plants, and
landfills.
Institutional:
Uses that include churches, places of sacred
and religious affiliation, cemeteries, hospitals,
civic or religious uses, schools, public/private
schools, and colleges/universities. Additionally,
this category could include other uses that are
exempt from taxes.
Green Space/Open Space:
This category includes land for the use of nature
preservation and passive recreation such as
Hayes Arboretum and along the Whitewater
Gorge. The category includes public parks,
retention areas, lakes, reservoir, greenbelts, golf
and disk golf courses.
Vacant Land:
Vacant land is land that is undeveloped, but is
not used for recreational or park purposes. The
land has no buildings or usable structures.
EXISTING CONDITIONS
132 RICHMOND RISING
Land Use Analysis
The existing land use map shows not only
Richmond’s incorporated area but also the
surrounding areas, including the extraterritorial
jurisdiction (ETJ). This context is important in
order to understand what is going on around the
city limits and how it could affect Richmond.
By looking at the existing land use map and
the table below, it is clear that most of the land
in Richmond is used for housing. Commercial
uses have spread in a linear pattern along the
major corridors such as U.S. 27, U.S. 40, and NW
5th Street. Where US 27 and U.S. 40 intersect,
Downtown Richmond and the Depot District are
home to several blocks of commercial uses.
For the most part, industrial land uses have been
established in the northwest quadrant of the city.
An interesting observation is that this type of
land use tends to follow the path of the railroad
throughout the city.
In terms of institutional land use, this
classification may look overwhelming on the
map. This is because not only does the category
include things like school, churches, and
government services, it also includes all parcels
that have been exempt from property taxes. As
an example, the Whitewater River is highlighted
in blue, because the Whitewater River Gorge
area is tax exempt. This area could alternately
be identified as recreation, not institutional.
Parks, recreation, and open space
makes up over 1,000 acres of land in
Richmond. This category is made up
of the municipal parks and any open
space left throughout the city. Each
park facility is highlighted in more
detail in the Parks and Recreation
section below.
The majority (68 percent) of the City’s
extraterritorial jurisdiction (ETJ) is
identified as agricultural land. As
described above, this could include
farming or raising animals. In some
instance, a single-family residential
home accompanies the operation.
LAND USE -
INCORPORATED AREA ACREAGE PERCENT OF
TOTAL
Residential 3,799 25%
Commercial 1,031 7%
Industrial 1,844 12%
Institutional 3,775 24%
Recreation/Open Space 1,008 6%
Agriculture 3,637 23%
Undefined/Vacant 442 3%
Total 15,533 100%
LAND USE -
2 MILE FRINGE ACREAGE PERCENT OF
TOTAL
Residential 3,292 15%
Commercial 488 2%
Industrial 602 3%
Institutional 1,684 8%
Recreation/Open Space 630 3%
Agriculture 14,747 68%
Undefined/Vacant 389 1%
Total 21,832 100%
RICHMOND
MUNICIPAL
AIRPORT INDIANA / OHIO STATE LINECENTERVILLE
NEW PARIS
SPRING GROVE
S A ST
N A ST MAIN ST
NW L ST
PEACOCK RD
W MAIN ST
S L ST
S E ST
S Q ST GARWOOD RDHENLEY RDNW 5TH STSALISBURY RDW INDUSTRIES RDFLATLEY RDROUND BARN RDW WEBSTER RD CART RDTURNER RD
FARLOW RDSALISBURY RDAIRPORT RDGATES RD
133COMPREHENSIVE PLAN
EXISTING LAND USE
North
EXISTING CONDITIONS
134 RICHMOND RISING
EXISTING NEIGHBORHOODS AND
HISTORIC DISTRICTS
As discussed in the existing land use section,
much of the land in Richmond is used for
housing. Through public engagement, the
project team heard that one of the best selling
points for living in Richmond is the historic
structures and architecture styles. For this reason,
neighborhoods and historic sites/districts are
discussed together. This section serves as an
inventory of neighborhoods based on having
an established association; it is not intended
to be an exhaustive list of every neighborhood
in Richmond. The following information was
provided by Richmond’s Neighborhood Services
Clearinghouse and the National Register of
Historic Places.
Neighborhoods
Richmond is home to over 25 organized
neighborhood associations. Each neighborhood
is unique in size, character, housing types, and
price point. Neighborhoods have the ability to
draw someone into a community and create a
sense of place for its residents. Because of this,
the quality and availability of neighborhoods
in a community is a huge contributor to quality
of life. Richmond’s number of organized
neighborhoods is impressive because it shows
that residents are engaged enough to be
involved in an association. Being able to clearly
map neighborhood boundaries shows that each
area has started to create some sort of identity
within the community.
The existing neighborhoods map reveals that
the majority of the established neighborhoods
formed in the center of the city and expanded
outward along U.S. 27 and U.S. 40. This
development pattern is fairly common. Over
time, urban sprawl starts to occur causing
housing development to locate along the
outskirts of a city or town.
MAP NUMBER LEGEND
Number Neighborhood
1 Westside Commons
2 Westview
3 Hidden Valley
4 Parkview
5 Mobile Manor
6 Fairview
7 Baxter
8 Joseph Moore
9 North Richmond
10 Depot District
11 Old Richmond
12 Old Germantown
13 Southside
14 Elizabeth Starr
15 Vaile
16 C.R. Richardson
17 Greenwood
18 Starr Parkside
19 Linden Hill
20 Reeveston
21 Unknown
22 Unknown
23 Unknown
24 Cambridge Square
25 Parc Larraine
26 Crestdale
27 Carriage House
1 2
3
4
5
6
7
8
9
10
11
12
13
14
15
16
17
18
19
20
21
22
24 25
23
26
27
S A ST
N A ST MAIN ST
RICHMOND
MUNICIPAL
AIRPORT INDIANA / OHIO STATE LINECENTERVILLE
NEW PARIS
NW L ST
PEACOCK RD
W MAIN ST
S L ST
S E ST
S Q ST GARWOOD RDHENLEY RDNW 5TH STSALISBURY RDW INDUSTRIES RDFLATLEY RDROUND BARN RDW WEBSTER RD CART RDTURNER RD
FARLOW RDSALISBURY RDAIRPORT RDGATES RD
SPRING GROVE
135COMPREHENSIVE PLAN
RICHMOND NEIGHBORHOODS
North
EXISTING CONDITIONS
136 RICHMOND RISING
Historic Districts
In addition to the neighborhoods, Richmond is
home to 10 historic sites and six historic districts
designated on the National Register of Historic
Places. These historic places can be seen as
community assets. Often times, people value
historic structures and areas and some are
even willing to pay more to live in a historic
district. Additionally, these areas or structures
add character to a community and can create a
unique identity for a place. On the other hand,
historic designations also come with challenges
and barriers. For growth and redevelopment
specifically, maintenance and renovations can
be costly. Some historic districts hold strict
regulations and an approval process for any
type of renovation or change to the structure.
These are just some of the trade-offs that come
with historic designations.
The following statements offer a brief description
of historic significance and district boundaries.
• East Main Street- Glen Miller Park
Historic District- Identified in 1986 as a
historic district, this area is recognized
for its landscape architecture, community
planning, and architecture. It covers nearly
2,160 acres of land on both sides of E
Main Street from North 18th Street to North
13th Street and Glen Miller Park.
• Old Richmond Historic District - This district
was added to the National Register in
1974 for historic significance in politics,
education, architecture, commerce, and
transportation. It is roughly bounded by
C&O Railroad, South 11th Street, South A
Street, and Alley S of South E. Street. In
2003, the Old Richmond Historic District
adjusted its boundaries that now include
A Street, 11th East Street, and the C&O
Railroad.
• Reeveston Place Historic District- In
2003, this district was added to the
national register for historic significance
in landscape architecture, community
planning and development, and
architecture. This area comprises South B
Street, South E Street, South 16th Street,
and South 23rd Street.
• Richmond Railroad Station Historic District-
This area has been on the national register
since 1987. The railroad station has
historic significance in its classical revival
architecture, transportation, and industry.
This area is made up of the Norfolk and
Southern Railroad tracks, North 10th Street,
Elm Place, North D Street, and Fort Wayne
Avenue.
• Starr Historic District- This area was
identified in 1995 as a historic district
known for its single-family dwellings
displaying Italianate architecture. This area
is roughly bounded by North 16th Street, E
Street, A Street, and the alley west of North
10th Street.
137EXISTING CONDITIONS REPORT
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EXISTING CONDITIONS
138 RICHMOND RISING
EXISTING TRANSPORTATION
Understanding mobility throughout a community
and connectivity to the larger regional, or even
state, transportation network can be done by
reviewing the Federal Highway Administration
Functional Classifications. These classifications
represent a process by which streets and
highways are grouped into classes, or systems,
according to the character of service they are
intended to provide.
Roadway Classifications
The Indiana Department of Transportation
(INDOT) publishes the functional classification
maps every 10 years; the most recent survey of
Wayne County was completed in 2015. The City
of Richmond’s transportation system is made up
of four classifications.
Interstate 70, being the highest classification
with full access control and a high level of driver
comfort, runs through the northern portion of
Richmond with four interchanges. Interstate 70
is highlighted in red on the existing conditions
map. There are several other principal arterials,
which only have partial control of access, such
as U.S. 27/South 9th Street and U.S. 40/Main
Street. These roadways serve as natural dividers
within the community, creating the four quadrants
discussed in existing land use sections.
Additionally, portions of Williamsburg Pike, North
6th Street, and South 10th Street are identified as
other principal arterials and shown on the map
as the green lines.
In urban settings, minor arterials provide intra-
community connections. When compared to
principal arterials, these roadways tend to have
lower travel speeds, accommodate shorter trip
lengths, and lower traffic volumes. The minor
arterials located in Richmond are highlighted in
blue on the existing transportation map.
The lowest classification roadways in Richmond,
aside from local streets, are major collectors.
These roadways, highlighted in orange on the
map, are characterized by an even distribution
of access and mobility function. Major collectors
act as an intermediate link between the arterial
system and points of origin and destination.
All other roadways in Richmond are considered
to be local streets. Although not an official
classification, local streets serve many important
functions by offering many points of direct
access to adjacent properties.
S A ST
N A ST MAIN ST
RICHMOND
MUNICIPAL
AIRPORT INDIANA / OHIO STATE LINECENTERVILLE
NEW PARIS
NW L ST
PEACOCK RD
W MAIN ST
S L ST
S E ST
S Q ST GARWOOD RDHENLEY RDNW 5TH STSALISBURY RDW INDUSTRIES RDFLATLEY RDROUND BARN RDW WEBSTER RD CART RDTURNER RD
FARLOW RDSALISBURY RDAIRPORT RDGATES RD
SPRING GROVE
S 8TH ST139
EXISTING ROADWAY NETWORK
North
EXISTING CONDITIONS
140 RICHMOND RISING
NATURAL FEATURES
Reviewing natural features such as bodies
of water, waterways, and flood plains is an
important component of an existing conditions
analysis because these areas can be very
sensitive to development. The natural features
within Richmond offer many benefits to the
environment, and disturbing the land can lead to
unintended consequences. The following sections
describe the natural features found in Richmond.
Water features
The main waterway traveling through Richmond
is the Whitewater River. This river has three
tributary rivers that flow into it including the West
Fork Whitewater River, Middle Fork Whitewater
River, and East Fork Whitewater River. Located
along the Middle Fork is the Middle Fork
Reservoir. Constructed in the early 1960s, the
reservoir provides Richmond’s water supply.
The 177 acre lake is owned by the American
Waterworks Company and its subsidiary, Indiana
American Water Company, but is operated by
Richmond’s Parks and Recreation Department.
Other waterways highlighted on the map
include smaller water features such as creeks
and ditches. Each is equally as beneficial to the
environment but not essential to this analysis.
Whitewater River Gorge
Where the West, Middle, and East Fork come
together, the Whitewater Gorge offers a unique
feature to Richmond. A gorge is a deep valley
with steep sides, usually formed by a river or
stream cutting through rocks. The Whitewater
Gorge dates back to the Ice Age and offers
visitors a prime location for fossil hunting and
exploration. It can be explored by boat or trail,
with the main trail extending 3.5 miles through
waterfalls, cliffs, quarries, and over numerous
bridges.
Floodplains
The floodplain, which consists of the floodway
and flood fringe, exists as a permanent natural
habitat. Richmond contains numerous areas of
floodplain running north and south. The most
predominant floodplain runs along the three
forks of the Whitewater River. All floodplains
located in Richmond are considered 100-year
floodplains, and structures located within them
are required to have flood insurance coverage
as a condition of receiving a mortgage loan
or home equity loan. In some instances, the
development of the land in these areas is
greatly restricted or prohibited because of its
proximity to a floodplain. The undeveloped
land on U.S. 27 is an example of an area
where development is restricted because of the
floodplain.
For more information about the undeveloped
land on U.S. 27, please see page 154.
In some instances, the term “100 year flood
zone” is misunderstood. It does not mean that
a flood will happen once in a 100 years. It
means that there is a 1 percent chance per year
that the area could flood. In terms of a 30-year
mortgage, a home located in the floodplain has
a 26 percent chance of experiencing a flood
during the life of a loan.
Although floodplains are problematic in terms
of development, they serve many purposes and
provide countless natural and environmental
benefits to the community. When left undisturbed
in a natural state, floodplains store water
and dissipate floods without adverse impacts
on humans, buildings, roads, and other
infrastructure. The natural areas located in
floodplains act as a filter to remove impurities
from runoff and overbank flow which improves
the water quality. Additionally, floodplains
provide habitat for diverse species of plants
and animals, some which cannot live anywhere
else. Most importantly, they are essential to a
community’s ability to adequately handle runoff
from rain events and snowmelt.
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NATURAL FEATURES
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PARKS AND RECREATION
The Richmond Parks and Recreation Master
Plan says it best: “Today, Americans spend more
time in outdoor recreational activities than ever
before, and the demand for leisure activities
in on the increase.” Parks and recreation is a
key component to the quality of life offered in
Richmond, with associated facilities making
up over 1,000 acres (6 percent) of land in
community. The following sections provide
an overview of each facility. These parks and
recreational facilities offer countless benefits to
the community including:
• Economic benefits associated with the
promotion of tourism, increased property
values, attraction of business and industry,
and reinvestment in property.
• Health benefits such as increased physical
activity can improve mood, lower blood
pressure, decrease stress, increase muscle
strength, and lower total cholesterol levels.
• Environmental benefits from open space
and vegetation include improved air
quality, recharging of aquifers, prevention
of pollution of surface and ground water,
and maintenance of wildlife habitats and
natural systems.
Park Facilities
Glen Miller Park
The largest park area and the most popular one
in Richmond, Glen Miller Park offers a broad
range of opportunities for recreation. Located
within its 199 acres are shelters, pavilions,
amphitheaters, rose gardens, fishing, golfing,
and a skate park. Both the playground and
restrooms are ADA accessible making this park
a place for all visitors to enjoy. Built in 1923,
the beautiful Glen Miller Golf Course was later
closed and incorporated into the greater Glen
Miller Park. The area was laced with walkable
pathways, that extend through hills, trees, and
small greens totaling 2,831 yards. The First Tee
training facility, established in 2008, continues to
offer 8-week golfing lessons for youth.
Highland Lake Golf Course
Highland Lake Golf Course was built in 1972 and
is located just off of U.S. 27 North and Interstate
70 on Highland Road. Compared to Glen Miller
Golf Course, this one is longer with 18 holes
and covers 165 acres of land. Recently, over 30
bunkers were renovated to add to the challenge
of the course. It is a popular destination for
many local, regional, and state tournaments.
Springwood Park
Formerly known as “Conservation Park,”
Springwood Park covers over a 100 acres and
includes the Whitewater River, large wooded
areas, a marsh, stream, and a 30-acre lake.
Users can enjoy picnicking, boating, and fishing.
In addition to passive natural areas, there is a
pavilion, storage buildings, restrooms, residence
structure, and play equipment on site.
Middlefork Reservoir
Not only does this park area include 100 acres
in land, the lake takes up an additional 177
acres. This park has endless amenities ranging
from boat rental and launches, cabins, and fish
cleaning station, to accessible play structures,
volleyball courts, and model airplane runways.
An important thing to note about this park is that
Richmond’s Parks and Recreation Department
is responsible for the operation and usage of
the city water reservoir, but does not retain
ownership.
Whitewater Valley Gorge Park
A valuable environmental and natural resource
to Richmond, the Whitewater gorge runs 3.5
miles through the city. Dating back to the Ice
Age, exposed bedrock along various points
along the gorge walls illustrate the geological
history that is unique to Indiana. The gorge
provides miles of hiking trails and scenic
vistas, picnic areas, vertical cliffs, and beautiful
waterfalls. Also, located in the park is Starr
Gennett Historic Site. The Whitewater Valley
Gorge Park accounts for 100 acres of land
surrounding the waterway.
Glen Miller Park
and Golf Course
Highland Golf Course
Springwood Lake Park Middle Fork Reservoir
White River Valley
Gorge Park
Clear Creek Park
Freeman Park
Mary Scott Park
Forest Hill Golf Course
Bicentennial Park
Scantland Park
Berryfield Park
Tenth Street Park
Swicker Park
Elks Lodge
Starr Park / Eastside Lions Park
Veterans Park
Jack Elstro Plaza
Wernle Park
Westside Lions Park
Pass through Park
Pocket Park
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PARKS, OPEN SPACE, AND TRAILS
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Clear Creek Park
Clear Creek Park, consisting of 49 acres of
park land, is divided into two sections by the
existence of West Main Street. Located on
the west side of Richmond, the park provides
a complex of sports-oriented activities which
include a baseball stadium, five ball diamonds,
Cordell pool, eight pickleball courts, horseshoe
courts, basketball courts, and sensory
playground.
Freeman Park
Covering 30 acres of land, Freeman Park is
home to an international striped basketball
court, shelter, swings, soccer fields, volleyball
court, and open fields for recreation. The south
end of the park is bordered by the Middle Fork
of the Whitewater River and consists mostly of
wooded area.
Wernle Park
Wernle Park is located between South L Street
and Wernle Road at 16th Street. As of now, it is
just designed open space with a retention basin
for the purpose of retaining storm water runoff
during peak times, but this park could hold
opportunity for the City of Richmond.
Mary Scott Park
Mary Scott Park is made up of 7 acres located
adjacent to Noah’s Ark Day Care Center and
Dennis Middle School. The proximity to the
two school enhances the potential of this area.
The park includes facilities for both active and
passive recreation and special facilities in a
cabin, shelter, and play equipment.
Richmond Senior Center
With indoor and outdoor recreational facilities,
the senior center is located on South 2nd Street.
This community asset offers a variety of options
ranging from bingo, book clubs, fitness classes,
and art programs to chair volleyball, basketball,
and pickle ball. Residents can enjoy access to
the amentities for as little as 15 dollars per year.
Small Community Parks
In addition to the park and recreational
facilities described above, Richmond is home
to several smaller parks. These facilities are
just as important to the community, but often
times serve a different purpose. Whereas the
large parks above may act as a destination
to the entire community, or sometimes even
region, smaller parks serve the neighborhoods
surrounding them. Acting as gathering points
for communities, these parks range anywhere
from 0.8 to 4 acres in size. Small parks such as
these can often become the catalyst for future
community development in building up the
neighborhood. For this reason, they may not
be identified on the map but were considered
for this existing conditions report. The following
parks have been identified as small community
parks:
• Bicentennial Park
• Veterans Park
• Starr Park
• Westside Lions Park
• North Tenth Street Park
• South Tenth Street Park
• Riverside Park
• Swicker Park
• Scantland Park
• Berryfield Park
• Jack Elstro Plaza
Connectivity through Trails and Bike Routes
Richmond’s 2015 Bike and Pedestrian Master
Plan outlines an entire network made up
of existing and proposed multi-use paths,
sidewalks, greenways, bike lanes, and shared
lanes. For the purpose of this existing conditions
report, this section works to highlight some of
the trails and bike routes offered in Richmond.
This is not intended to be an exhaustive list as
the City is continuously adding new infrastructure
and improving connections. The Parks and
Trails Map illustrates the connection, or lack of,
among the existing parks and trails. By doing
this, it will reveal any gaps in connectivity and
start to lay the groundwork for the types of
recommendations this comprehensive plan could
offer to enhance the network.
State Connections
American Discovery Trail
The American Discovery Trail (ADT) includes
two portions, a northern and southern portion,
making up over 600 miles of trail throughout
the State of Indiana. Richmond is situated at
the southern end of the Northern Route. Just
145EXISTING CONDITIONS REPORT
southeast of the incorporated boundary, the
trail travels along Greenmount Pike onto Wernle
Road and crosses the river. Eventually, the trail
transitions onto NW 5th Street and continues
northward out of the city limits.
Regional Connections
Cardinal Greenway
The Cardinal Greenway is a 58-mile trail that
spans from Richmond through Muncie to Gas
City, Indiana. Because the trail is a long, paved
pathway, it is ideal for hiking, jogging, cycling,
and skating. Recently, a bike share station
was added at South 3rd street in Richmond for
people who would like to ride along the trail
but don’t own a bicycle. The farthest south the
trail goes is at Test Road in Richmond. From
there, the trail travels along the river northward
to Springwood Park. There are two trailheads
located in Richmond, both with parking,
restrooms, water fountains, and interpretive
displays. Union Pike Trailhead is located just
south of the intersection of West Industrial Road
and Union Pike. The second trailhead is located
at North D Street just east of the East Fork White
River.
National Road Heritage Trail
This trail is part of a border-to-border trail
stretching between Terre Haute and Richmond,
Indiana. It is anticipated that the trail will
span over 150 total miles. The trail enters into
Richmond from an abandoned railroad corridor
to the west of the city, crossing the Whitewater
River on Main Street, and transitions back to the
railroad corridor just north of Glen Miller Park.
Richmond is home to one of twelve “Madonna
of the Trail” statues established by the Daughters
of the American Revolution, as part of the Great
National Shine in commemoration of pioneer
mothers heading west.
Local Connections
Bike Routes
Shown as a blue line on the map, there are
multiple designated bike routes throughout
Richmond. This means that the city determined
that roadway as one of the most bikable streets
in Richmond. The map reveals that the southeast
quadrant of the City features the highest level of
connectivity when it comes to bike infrastructure.
It can be assumed this is because of its proximity
to downtown and the development density in
this area. Most recently, phase 1 of the bike
look has been constructed. It is anticipated that
phase 2 construction will started in early 2022.
As for the other city quadrants, bike infrastructure
is few and far between.
Gorge Trail
The Whitewater River Gorge Trail runs from Test
Road to Thistlethwaite Falls, covering 3.5 miles.
Throughout the trail, users will come across nine
bridges and eight sets of stairs. There are a
variety of destinations and scenic views along
the trail such as bird sanctuaries, canopy of
trees, Weir Dam, National Road Bridge, and Test
Woolen Mill.
Riverside Trail
A project of the Society for the Preservation
and Use of Resources (SPUR), the Riverside Trail
continues to grow. The vision for this trail is to
connect the Whitewater River Gorge, Cardinal
Greenway, Middle Fork Reservoir, Glen Miller
Park, and Hayes Arboretum.
Hayes Arboretum Trails
Nearly 466 acres of woodlands, meadows,
swamps, and streams make up the Hayes
Arboretum. Within this area, there is a 3-mile
long auto trail, several hiking trails, and even
three mountain bike trails.
EXISTING CONDITIONS
146 RICHMOND RISING
COMMUNITY SERVICES
The term community services can mean a variety
of things to different people and organizations.
For the purpose of the comprehensive plan,
community services refers to education,
healthcare, and public safety such as police,
fire, and EMS. The following sections provide an
overview of the services and facilities offered in
Richmond.
Educational Institutions
Richmond has no shortage of educational
institutions. Richmond Community Schools
comprises 10 schools and six special programs.
There are six elementary schools serving
preschool through 4th grade, three middle
schools serving 5th through 8th grade, and one
high school serving 9th through 12th grade. In
addition to the public school system, there are
several private education institutions including
Seton Catholic East, Seton Catholic West, The
Children’s School, Richmond’s Friends School,
Community Christian School, Seventh Day
Adventist Church School, Oak Park Christian
Academy, and STEM programs through Earlham
College.
In terms of higher education, five institutions offer
various opportunities for individuals looking to
further their education. Earlham College offers
nearly 50 programs ranging from archeology,
Chinese language, film studies, education, to
politics, sociology, and anthropology. Another
institution with a strong local presence, Indiana
University East is another great institution in the
City of Richmond with a strong local presence.
With an enrollment of over 3,700 students, the
campus provides the opportunity to complete
bachelor’s and master’s degrees and certificates
in-person and online. Over 60 academic
program options are offered, with business and
nursing being the most popular. Tuition is very
affordable and more than 28 million dollars in
financial aid is awarded annually. Also located
in Richmond is the Purdue Polytechnic Richmond
extension of Purdue University. The benefit to this
local campus is that it is small enough to provide
students with dedicated, one-on-one attention
while earning a degree from Purdue University.
This campus offers a variety of programs
including computer graphics (animation, game,
and web design) and engineering technologies
(mechanical, robotics, and industrial). The
Bethany Theological Seminary, the forth
institution, offers two master programs and five
separate graduate certificates for those pursuing
a career within church ministries. The seminary
focuses on the Christian faith, and is the
official seminary of the Church of the Brethren.
Accounting for the fifth and final facility, Ivy Tech
Community College provides a wide variety of
options for students in both the programs that
are offered and the extracurricular activities that
students can take advantage of. Another perk
of this facility is that it is the most affordable
option when choosing a college in Richmond;
in 2014, the net cost for a full-time student was
approximately $6,500 per year.
MAP NUMBER LEGEND
Number Educational Institution
1 Richmond Community School
Building
2 Charles Elementary
3 Crestdale Elementary
4 Fairview Elementary
5 Starr Elementary
6 Vaile Elementary
7 Westview Elementary
8 David W. Dennis Intermediate
School
9 Hibberd Building
10 Julia E. Test Intermediate School
11 Richmond High School
12 Earlham College / Bethany
Theological Seminary
13 Indiana University East
14 Purdue Polytechnic Richmond
15 Ivy Tech Community College
1 2
3
4
5
6
7
8
9
10
11
12
13 14
15
Richmond State Hospital
Reid Health
Meridian Health Services
Centerstone Richmond
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COMMUNITY SERVICES
North
EXISTING CONDITIONS
148 RICHMOND RISING
Public Health and Safety
The Richmond Police Department is made up of
over 75 officers, several dedicated volunteers,
reserve officers, and support staff. The office is
located near the intersection of North A Street
and North 5th Street. The department is trained
and offers support in a variety of divisions and
specialty services including:
• Patrol
• Investigations
• Drug Force Task
• Youth Services
• Community Outreach
• Equestrian Unit
• Bicycle Patrol Unit
• K-9 Unit
• Reserve Unit
• Explorer Cadet Post
• CUFFS TV Program
The Richmond Fire Department has
approximately 80 professional firefighters
and staff. There are six fire stations located
throughout Richmond. Each firefighter is
assigned to one of three shifts, making up
about 25 firefighters per shift. All firefighters are
trained as an emergency medical responder, an
emergency medical technician, or a paramedic;
therefore, they are instrumental in delivering
emergency medical services (EMS).
In terms of healthcare, Richmond has two local
hospitals. Reid Health is a general medical and
surgical facility, and has served the Richmond
community since 1905. The new facility is
located in northern Richmond along US 27, just
south of Interstate 70. Richmond State Hospital
has been around since 1890. This health facility
is a psychiatric hospital operated by the state.
It is one of six hospitals within the Family and
Social Services Administration Division of Mental
Health. In addition to the two hospitals, a
handful of medical offices and an urgent care
facility are located throughout Richmond.
149EXISTING CONDITIONS REPORT
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EXISTING CONDITIONS
150 RICHMOND RISING
EXISTING REDEVELOPMENT
OPPORTUNITIES
A key component to planning for future growth
and development is addressing the unique
opportunities and needs of older parts of
the City. Even the most vibrant communities
experience vacancies at any given point in time.
These areas present an opportunity to conserve
land resources, leverage existing infrastructure,
and repurpose existing structures. As opposed
to new greenfield development on the edge
of the City, redevelopment of existing areas or
structures can result in:
• A more efficient and effective use of
land and resources since existing areas
will already have the necessary public
infrastructure.
• A more compact form of land use and
development.
• Reinvestment in areas experiencing growth
pressures, or that haven’t benefited from
investments made by the public or private
sectors.
This section is not intended to provide an
exhaustive list of redevelopment sites in
Richmond but instead will identify the benefits
and areas of focus for redevelopment. Through
the community asset mapping workshop
and stakeholder engagement sessions and
confirmed by the City, there have been three
areas of focus identified for redevelopment
efforts.
Downtown
Downtowns are sometimes referred to as the
heart of a city and region, and accordingly play
a strong role in the health of their respective
communities. Richmond is unique in that it has
an original downtown area and located just
north of that is the Depot District. As the Depot
District continues to expand, it is important
to continue improving the original downtown
area too. Additionally, creating pedestrian
connections between these areas will foster
activity and investment in both locations.
Fortunately, the downtown and Depot District are
located in Opportunity Zones. The opportunity
zone program offers three tax incentives for
investing in low-income communities through a
qualified Opportunity Fund.
Benefits from investment in downtown
revitalization include job creation, increases
in property values, and attraction of new
residents and tourists. On the other hand,
the redevelopment of downtown structures
comes with many challenges. These structures
are usually aging, which can result in high
construction costs, especially with ADA
regulations and efficiency standards. The key to
downtown revitalization is establishing a shared
vision and a pathway to get there. Revitalization
doesn’t always have to mean redeveloping
a structure. Investment in streetscape
improvements such as sidewalks, bike lanes,
landscaping, and seating can enhance an area
too.
With the current roadway improvements and
installation of the Stellar bike loop, improving
movement and connectivity is underway. As
redevelopment opportunities open up within the
downtown area, the City of Richmond should be
proactive in planning for the reuse of site and
structures within this area.
A great example of this is the former
Elder-Beerman building located at 601 E
Main Street. This structure presents a unique
opportunity for Richmond with its prime location
in downtown and a connecting skywalk to a
parking garage, and could be the next anchor
for revitalizing downtown Richmond.
151EXISTING CONDITIONS REPORT
DOWNTOWN RICHMOND
EXISTING CONDITIONS
152 RICHMOND RISING
Depot District
The Depot District is bounded by North D Street
to the south, the railroad to the north, North 10th
Street to the east, and both sides of Fort Wayne
Avenue to the west. Similar to downtown, the
Depot District is lined with shopping, dining,
and historical attractions such as the 1902
Pennsylvania Railroad Depot and the National
Model T Ford Museum. Fort Wayne Avenue
is booming with popular local destinations
including Little Sheba’s restaurant, Roscoe’s
coffee bar, Two Sisters Books and More, and
Richmond Furniture Gallery to name a few.
Additionally, art murals seem to be the
distinguishing factor for this area. The Depot
District is home to several unique art pieces
sprinkled throughout the district. The photos on
the following page are just two examples.
As discussed in the previous downtown section,
historic structures can come with a hefty price
tag but Richmond should be proactive in the
reuse of the structures. Redevelopment efforts
within this district could include filling vacant
store fronts as they become available and
working to increase occupancy in the upper
floors of the existing structures.
153EXISTING CONDITIONS REPORT
North
DEPOT DISTRICT
EXISTING CONDITIONS
154 RICHMOND RISING
Undeveloped Land on U.S. 27
In 1905, Reid Memorial Hospital was founded by Daniel Grey Reid
and located at 1401 Chester Boulevard in Richmond. The hospital was
dedicated to Reid’s wife and son who had passed away shortly before
due to the lack of healthcare facilities at the time. The 31,000-square-foot
building provided healthcare services for over a century. After over 100
years of operations, Reid Hospital and Health Care Services relocated to
the north, closer to the I-70 interchange, in 2008. At that time, the building
was sold to Spring Grove Development, LLC, under the premise that the
building would be restored; after several years of inactivity, as well as an
accumulation of delinquent property taxes, the City took ownership of the
site in 2018. Prior to finalizing ownership, in 2017, demolition plans were
prepared by TRC Environmental Corp., an Indianapolis engineering firm, to
coordinate the removal of building structures and site infrastructure. Due
to asbestos being present within the building, and typical striation given
the age of the structure, careful attention was taken to remove hazardous
materials through the demolition process. All buildings and parking lots
were removed while a portion of the existing roadway and all connected
stormwater collection and conveyance systems remained. The site was
then re-graded to closely match adjacent areas, concluding the demolition
in 2018.
Since this time, the property has been graded, seeded, and allowed to
naturally revegetate over time. The site has grown into a large open space
with a host of invasive vegetation along the perimeter woodlands, and
a roadway through the site has been preserved to provide access to a
neighboring residence beyond the site to the northeast. With an existing
mature tree canopy along a large portion of the site, the open fields and
sloping hills provide an area of mostly undeveloped land just north of
downtown Richmond.
Today the City owns six parcels with a combined area of 81.0 acres; three
of these parcels (totaling 49.2 acres) are within the City of Richmond, with
two more parcels (totaling 4.2 acres) residing within the adjacent Town
of Spring Grove, and the final parcel (27.6 acres) being outside of either
municipality. These parcels are located within the county and fall within the
boundaries of the city’s 2-mile extraterritorial jurisdiction.
Since 2017, the City of Richmond has been thinking about how the site
could be redeveloped and reused. Due to the site’s history, location,
and proximity to downtown Richmond and Interstate 70, the Richmond
Rising Comprehensive Plan will provide detailed recommendations on
the site’s reuse and redevelopment. Additionally, the plan will feature an
implementation framework to best identify which economic development
tools and capital improvement projects can be leveraged by the City to
incentivize redevelopment on the site.
155EXISTING CONDITIONS REPORT
UNDEVELOPED LAND
EXISTING CONDITIONS
156 RICHMOND RISING
Site Analysis
The following section works to provide a high level analysis of the existing
condition site constraints related to redevelopment.
Context
The site is located east of US27/Chester Boulevard, just north of downtown
Richmond, 1 mile north of the popular Depot District, and two miles
south of the I-70 interchange. Currently, the redevelopment area is within
close proximity to large expanses of tree-lined farmland to the northeast,
approximately 31 acres, and the Cardinal Greenway travels less than a
mile west of the site toward Sim Hodgin Parkway. Land uses immediately
surrounding the site include the following:
Residential
To the east, along Middleboro Pike, there is an existing mobile home site
and a mix of single-family and agricultural lots extending north beyond
the site. Some small clusters of single-family units abut the site along Oak
Drive to the north of the property, and south just below Freeman Park.
Other single-family units can be found on the west side of US 27/Chester
Boulevard.
Office
Within the Town of Spring Grove to the north of the site, is an office park
that is occupied by several dentist and orthodontics offices. West of US
27/Chester Boulevard, multiple medical facilities including an internal
medicine center and a dermatologist office are located along the highway.
Additionally, the Quaker Hill Conference Center is tucked back from the
road along Quaker Hill Drive to the west.
Commercial
South of the East Fork Whitewater River, there is a current mixture of
commercial uses, including additional medical facilities, auto sales and
repair services, and small businesses along North J Street and North 12th
Street.
Recreational
Freeman Park is located to the southeast of the site and offers more active
recreational uses and a direct connection to the riverfront. The existing
30-acre site is currently home to a variety of sports uses including a
fenced soccer field and an international striped full-sized basketball court.
Additional amenities are provided such as swing sets and a picnic area
with overhead lighting for night time use. The park includes a large open
field to the west that is unmarked and can be used as a flexible space for a
host of other events such as volleyball and futsal, or any other desired use.
This area is pretty well connected to the bike loop and Center City. A key
consideration is that this area is home to a diverse community comprised of
LAND USE MAP
157EXISTING CONDITIONS REPORT
several ethnicities including African American and Latino people. Freeman
Park is specifically used by the Latino community. For an example, the
basketball court has been striped in a unique way that is familiar to this
community. Additionally, many of the signs throughout the park are written
in Spanish. This demographic will be an essential part of determining
recommendations that may impact the park facility.
Institutional
Religious uses can be found on the west side of US 27/Chester Boulevard,
and a skilled nursing facility can be found along Oak Drive. Although
not immediately adjacent to the site, the Middlefork Reservoir lies
approximately 3,000 feet to the northeast.
EXISTING CONDITIONS
158 RICHMOND RISING
Existing Zoning
Although part of the site is located within the county, it falls within the
city’s extraterritorial jurisdiction. The planning and zoning jurisdictions of
two communities – the City of Richmond and the Town of Spring Grove –
intersect the site. Since the zoning ordinances for these communities identify
what uses are permitted, the City and Town will need to agree on the reuse
for the full site to be utilized. Furthermore, multiple zoning districts for each
community are present on the site. In summary, these circumstances imply
that both the City and Town will likely need to take action (such as a use
amendment or a rezoning petition) in order for a site-spanning reuse to be
compliant with both sets of regulations.
City of Richmond Zoning
The two (2) largest parcels on the site (with a combined acreage of
nearly 57 acres) are located within a “General Commercial” (GC) district,
which is intended to accommodate “moderate intensity commercial and
office uses” such as retail, restaurants, light offices, and personal and
professional services. Development within these properties will require
multiple considerations such as a 25’ front-yard setback, a 15’ side-yard
setback, and a 35’ rear-yard setback. No structures shall occupy more than
80 percent of the overall site, and required screening within all bufferyards
and parking lots will be required per landscape standards.
The City’s “Mixed-Use Overlay” (MUO) district also applies to the site,
which expands the set of uses to include the addition of single- and multi-
family residential uses, as well as institutional uses, such as parks, child
care, and religious uses. Any proposed use outside of the base zoning will
be required to conform to the proposed base zoning requirements. For
example, any multi-family residential development within the MUO will be
required to meet all M2 District standard requirements including setbacks,
lot coverage standards, and landscape buffering requirements. Likewise,
single-family uses must conform to all R2 District standards, and any
institutional uses will be required to meet all IS District standards.
The two (2) southernmost parcels (totaling nearly 20 acres, and located
primarily in the floodplain) are zoned “Parks and Recreation” (PR). These
areas are to allow all types of active and passive recreation including
parks, trails, playgrounds, and sports fields. PR zoning is designated to
protect areas for conservation, and any new development within these sites
will be required to meet predetermined setbacks per the zoning ordinance.
All primary structures must maintain a 50’ minimum setback from the
property line, and no more than 50 percent of the lot may be developed
with structures and parking.
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Town of Spring Grove Zoning
The two northwest parcels of the site (totaling about 4.2 acres) are within
the Town’s jurisdiction. A copy of the ordinance was not available for
review, but a map of the districts was obtained. The Spring Grove zoning
ordinance is notably more restrictive than the City’s, with most of the
attention being paid to single-family residential uses. The smallest parcel
(about 0.3 acres) is part of a larger “Conditional Use” district extending
along Chester Boulevard/US 27; typically, special use districts require direct
discussion with the plan commission to identify a feasible use. The other
parcel (3.9 acres) has both “Conditional Use” and “R-1” (typically single-
family residential) as pertinent designations.
Additional Ownership and Restrictions
In addition to the site’s various zoning restrictions the property currently also
has a restrictive covenant in place. The covenant outlines that Reid Health
must approve the development of another hospital or healthcare facility on
the property.
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Infrastructure
Site Utilities and Stormwater Infrastructure
Prior to demolition, the site was serviced by public utilities accessed along
Chester Boulevard/US 27. Data for interior areas of the site were identified
through previous site development plans, but a lack of public information
limits conclusions about other onsite extensions; nevertheless, major
findings are summarized below:
• A sanitary sewer main currently exists to the west along Chester
Boulevard/U.S. 27. The site was served from an existing sanitary
sewer connection at the southwest corner of the site. This connection
point should be able to be utilized for the site redevelopment pending
approval from Richmond Utilities.
• A water main currently exists to the west along Chester Boulevard/U.S.
27. The site utilized a connection to the main at the northwest corner
of the site. Records indicate that this connection was decommissioned
at the time of building demolition, but any future water service should
be able to connect in the same fashion pending approval from
Indiana American Water.
• It is documented that a series of underground storage tanks were
removed from the site during demolition of the previous hospital
infrastructure. An additional storage tank is identified south of Oak
Drive and Chester Boulevard, and will need further information
to determine its use and impact to the adjacent site. Future
development may require removal of this structure.
• An existing well is located to the northeast of the site. Due to the
existing environmental condition of the surrounding area, this well is
to be demolished and any water servicing the site shall be brought in
from the City’s municipal water supply.
• Existing gas service currently extends across the north end of the
site along Oak Drive. Records indicate that this service line was
disconnected at the time of building demolition, but any future gas
connections should be able to connect in the same fashion pending
approval from Richmond Utilities.
• Records indicate that the power poles through the center of the
site still provide active electric service to the site. Any future electric
service should be extended from these existing poles and be
coordinated with Richmond Power & Light.
• Existing fiber optic service is currently located at the southwest corner
of the site along Chester Boulevard/US 27. Any future fiber optic
and communication service should connect to the existing fiber line
pending approval from the telecommunications utility provider.
• Previous site development did not accommodate onsite stormwater
storage or treatment infrastructure. It is likely that prior to the
demolition the site’s stormwater runoff was conveyed directly to
the Whitewater River. Per the current development ordinance,
stormwater detention will be required onsite. This can be achieved
in a variety of different ways (i.e., wet detention pond, dry detention
pond, underground detention, rain gardens, etc.) depending on the
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161EXISTING CONDITIONS REPORT
selection of the final use of the property. It is recommended that
any stormwater detention devices be installed along the east side
of the site to complement the existing topography and outfall to the
Whitewater River Middle/East Fork in an efficient way.
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162 RICHMOND RISING
Transportation Network
Overall, the former hospital site is easy to access from the neighboring
community. Chester Boulevard/U.S. 27 provides a direct connection to
Interstate 70 just two miles to the north, making the site accessible to a
major interstate in less than five minutes. Chester Boulevard/ U.S. 27 also
provides a strong north/south route through the city itself and intersects
U.S. 40 approximately 1.5 miles to the south, providing quick access to
downtown and easy travel to the east and west. Adjacent routes to SR 227
and SR 121 provide multiple options connecting traffic traveling east of the
site, as well.
Existing access points to the site have been previously provided in three
locations:
• To the southwest of the site a traffic signal is present at Sim Hodgin
Parkway, providing a controlled entry to the site and a dedicated
access drive to the former hospital parking lot. While this intersection
provides controlled access to the site, the angle of the existing drive is
such that turning may pose a problem to some, especially southbound
traffic. The drive here not only provides access to the site, but
provides access to a single residential property located to the east
of the property. This roadway parallels the river and is paved to the
edge of the property, where it extends to the residence as a narrow,
gravel driveway. This access road will need to remain following
redevelopment because it is the only access point for this property.
• One block north, along Chester Boulevard, an existing curb cut
provided ingress/egress to the site as well, though access is not
controlled by any traffic signals. This access is located near the crest
of a hill and provides a limited view of traffic traveling southbound
along Chester Boulevard.
• Finally, to the southeast, an access drive to Freeman Park provides a
point of entry on the opposite side of the river to SR 121. The Freeman
Park drive and associated transportation network are not directly
connected to the larger portion of the site at this time.
While the existing access points are likely to remain during redevelopment,
modifications may be required to better control turning movements into
and out of the site. Redevelopment efforts will need to review existing
traffic counts along Chester Boulevard/ U.S. 27 and proposed traffic counts
coming from the proposed development uses with the City of Richmond to
determine applicable locations and design changes.
Bike lanes and trails are not present on the site itself. Sidewalks provide
a walkable surface along the property’s Chester Boulevard/U.S. 27
frontage, but they are narrow and in close proximity to the roadway, with
few opportunities for shade or protection from surrounding elements.
The presence of a busy highway could be an impediment to pedestrian
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163EXISTING CONDITIONS REPORT
access. The “2015 Bike and Pedestrian Master Plan” proposes a shared-
use pathway along the site’s Chester Boulevard/ U.S. 27 boundary, and a
greenway along the East Fork of the Whitewater River at the site’s southern
boundary.
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164 RICHMOND RISING
Environmental Features
Site Topography
The site generally slopes from northwest (high of 995 feet above sea level)
to southeast (low of 910 feet), with a rather steep drop along its northern
boundary; in some areas, elevation drops 70’ over 160’ horizontal distance
(44 percent slope). In other areas of the site, the elevation “steps down” as
the site transitions to the riverfront, creating a series of flat areas leading
to the waterway below. Post-demolition grading has raised up a portion of
the site from its adjacent surroundings, and is currently elevated at least 15’
above the lower woodlands.
The East Fork of the Whitewater River comprises the southern border of
the property, beginning at the Middlefork Reservoir to the northeast of the
site and merging into the Middlefork just to the southwest. Roughly half
of the site is occupied by 100-year floodplain, and is therefore under the
regulatory jurisdiction of the Indiana Department of Natural Resources
(DNR). The term “100-year floodplain” means that there is a 1% chance
in any particular year that flooding will occur to the extent outlined by the
floodplain. The floodplain elevation ranges from 923’ on the east side of
the property to 919’ on the southwest side. Construction can be permitted
here, depending on compliance with DNR and FEMA regulations.
Contamination / Hazardous Areas
The known use of asbestos and lead paint in the previous building’s
original construction has long been a concern, and was exacerbated by the
alleged materials stripping that Spring Grove Development, LLC engaged
in once they acquired the structure. Beginning in February of 2014, Phase
I and Phase II Environmental Site Assessments were performed. During the
process, testing confirmed the presence of hazardous contaminants within
the site including arsenic, chromium, and thallium. As a result of these
findings, the Indiana Department of Environmental Management requested
further analysis to determine the extent of remediation required within the
site.
In May of 2018, a Supplemental Site Investigation Summary Report was
published by Environmental Resources Management, identifying the results
of further testing and initial remediation efforts. This report indicated that
levels of contamination are considerably lower than previously identified,
and many of the original concerns have been identified as being near
normal levels. While the conditions have improved considerably, it was
recommended an Environmental Restrictive Covenant be implemented to
reduce the possibility of future disturbance of contaminated materials.
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165EXISTING CONDITIONS REPORT
An environmental site assessment is a report that identifies
potential or existing environmental contamination liabilities.
The analysis, often called an ESA, typically addresses both the
underlying land as well as physical improvements to the property.
The Phase I ESA is generally considered the first step in the
process of environmental due diligence. A Phase I report generally
identifies potential or existing environmental contamination
liabilities. If a site is considered contaminated, a Phase II
environmental site assessment may be conducted to further
investigate the presence/absence or further identify/quantify
potential environmental contaminants that were recognized in
the Phase I ESA. A Phase III Site Assessment is called for only
when contamination has been identified. A Phase III assessment
determines the extent of the contamination, and forms the basis for
preparing a remediation plan.
Since then, ongoing efforts have continued to provide assessment and
monitoring of the site, with the intent of mitigating the environmental
concerns within the site, and restore it to a safe and natural state. As
recently as January 2019, an updated Remediation Work Plan was provided
by ERM to give clear direction on how to do so effectively. Based on this
work plan, select locations within the site are to be excavated and all
hazardous soils are to be removed from the area. Once this is complete,
clean soil from other areas within the property will be used as fill to restore
the original elevation and native vegetation will be reestablished within the
site.
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166 RICHMOND RISING
Opportunities and Constraints
The following points are key takeaways from the items discussed above:
Adjacent land uses and current zoning policy provide redevelopment
flexibility. Current uses adjacent to the redevelopment area provide an
established conglomerate of medical facilities and offices within a walkable
distance to the site. With the redevelopment area being in close proximity
to downtown and the popular Depot District, this location is very much
accessible to the nearby community, and provides a good opportunity
to create a connection for new businesses or residences to tie into the
neighboring areas.
Current zoning has already been established on portions of the site to
accommodate a wide array of uses and provides a unique opportunity for
a community to provide all of the necessary components for daily living.
Housing is allowed within the mixed use overlay to provide a place for
residents to live, and adjacent areas dedicated to parks and conservation
allow for a close connection with the natural environment as well as places
for play and exercise. Allowing businesses and office uses within the
space provides opportunities for jobs and services that will be essential
to residents while providing safe, convenient access. Allowing for such
a variety of uses reduces many of the hurdles that may be required to
develop places that businesses want to grow into, allowing for a quick and
expedient process to build within the site. Utilization of the full site may
require cooperative action by the Town of Spring Grove and the City of
Richmond.
Transportation network provides access to local and regional corridors.
Future development will be attracted to property adjacent to a major
thoroughfare such as I-70 and U.S. 40. These corridors provide quick
external connections to adjacent communities in all directions, offering
prime real estate for many different uses.
While the redevelopment area has external visibility, the adjacent highway
and access may provide challenges in themselves. The current location is
accessed along a hillside where existing ingress and egress may prove to
be difficult for some drivers as sight angles are limited by the natural terrain
and existing adjacent improvements. Also, the wide right of way that is
currently in place makes for longer distances and ever-changing traffic
patterns that can lead to concerns with users entering and existing the site.
Additional measures will likely be required to control traffic at entrances
and may lead to further detailed studies and assessments before the site is
able to be developed.
Adjacent multimodal infrastructure can be improved. Multimodal
connectivity is a challenge facing the site. The desire within the community
is to create a place that can be accessible by alternative modes of
transportation, but the site is encompassed by busy highways, narrow and
uncomfortable sidewalks, and a lack of crosswalks or bike lanes. Providing
such connections will require additional improvements along adjacent
intersections and street frontages to incorporate necessary amenities
and proper signaling for pedestrian crossing. Dedicated bike lanes and
providing connected bridge access across the Whitewater River will require
specific funds to be allocated for such uses above and beyond typical site
development, increasing overall improvements costs.
Site utilities are available. The recent occupation of a former major use
(medical facility) means that public utilities – including sanitary sewer,
water, power, gas, and fiber optic cable – are present on the site. The
presence of these utilities greatly diminishes development uncertainty and
additional up-front costs, which will translate into increased interest for
development within the site.
Remediation efforts pose redevelopment challenges. A significant
challenge facing the site is the previous existence of hazardous materials.
Previous remediation has been implemented through a series of tests,
site assessments, and documented cleanup, but portions of the site have
167EXISTING CONDITIONS REPORT
been identified to contain levels of contamination that are not suitable
for residential exposure. While many of these are far enough below the
ground surface, and only found in isolated areas within the site, any future
development will need to be mindful of these locations, and any possible
restrictions on local groundwater usage and soil disturbance. The stigma
of developing on a formerly contaminated land may cause developers
and residents to hesitate utilizing the site in fear of side effects or potential
health concerns.
Existing topography and natural features are assets. The site is
located directly adjacent to areas of established vegetation and natural
woodlands, creating a prime opportunity to connect outdoor recreation
with the adjacent uses. The woods and lowlands provide spaces that can
be developed into recreational uses such as trails, parks, and conservation
areas to promote a healthy and active lifestyle that is easy to access within
the community. Employees from adjacent businesses or future residents
can utilize this space for passive recreation such as a walk through the
woods, and more active opportunities are available as this area can easily
connect to Freeman Park to the southeast.
Recreational opportunities aside, many communities are realizing the value
of activating riverfront spaces of all sizes. Utilizing property adjacent to
the riverfront will provide a great opportunity for development as people
will often gravitate towards these spaces, and businesses, residences, or
cities can all take advantage of enhancing these areas for public use.
Connecting people to the riverfront is a great way to spur an interest and
appreciation for outdoor activity and provides unique opportunities to
connect to the water that are not available elsewhere within the community.
One of the more notable challenges is the combination of the extreme
contours adjacent to a sizable floodplain. While the topography of the
land can be manipulated for new construction, any impact to the existing
100-year floodplains will require FEMA permitting for constructing within
this area. Any filling of areas designated to be located within the 100-
year floodplain may require the developer to provide compensatory water
storage elsewhere onsite, adding to the overall cost of earthworks and
construction within the area.
Overall, a great opportunity exists here, with the availability to develop
something that can become a destination for outside interests and a
catalyst for attracting desirable business enterprises. Accomplishing
this redevelopment will create a foundation to generate more revenue
within the heart of the community and provide the necessary income
and subsequent tax revenues that will help promote positive growth and
improvements for the city. A thoughtful approach to this site not only
presents the opportunity for new jobs, but also an inducement that could
attract new residents to the community, retain young professionals, and
create a place that is attractive to both visitors and natives alike.
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KEY FINDINGS
The following statements are intended to serve as the conclusion for the entire existing conditions report. The
data and analysis points to six key challenges in which Richmond is or will be facing in the future. Each of these
challenges will be further explained in chapter three of the comprehensive plan.
DECLINING POPULATION
Richmond’s population has been decreasing for the last several years. The City is expected to experience a two
percent decrease in total population over the next five years. Additionally, Richmond’s population is continuously
getting older, with a median age that is two years older compared to the state. This challenge is further
complicated by a concept known as brain drain. This population decline could be directly related to the quality
of life currently offered in Richmond.
QUALITY OF HOUSING
Nearly 70 percent of the current housing stock in Richmond was built before 1970, meaning the units were
constructed before modern building codes went into effect. The combination of aging structures, high percentage
of renter-occupied units, and increasing vacancy rates contribute to the overall quality of housing offered in
Richmond. Code enforcement plays a significant part in the ability to provide
high-quality, clean, safe neighborhoods.
LACK OF HOUSING OPTIONS
In addition to challenges related to the quality of housing, Richmond lacks variety in housing types and price
points. The majority of the housing stock is single-family homes. A variety of housing types is needed to attract
young professionals and encourage aging in place. Additionally, Richmond is lacking in the middle range and
higher-end price points for housing. This could mean workers with a healthy salary are having to look for housing
options elsewhere.
169EXISTING CONDITIONS REPORT
KEY FINDINGS
MULTIMODAL TRANSPORTATION
With the Cardinal Greenway, several trails along the river, and the most recent addition of the bicycle loop,
Richmond has been taking strides to improve connectivity but there is still more to do. A popular response during
public engagement opportunities reveals gaps in connectivity for pedestrians still exist. Addressing this challenge
provides an alternative mode of transportation and serves as recreational amenities. Furthermore, citizens
expressed the need for public transit improvements that offer a more user-friendly, convenient service.
COMMUNICATION AND COLLABORATION
Streamlined processes, transparent decision-making, and efficient use of resources are key components to any
successful community. The City should always be working to improve communication and collaboration among its
citizens, organizations, and various bodies of government. A common concern expressed during the engagement
phase reveals that citizens feel that decisions aren’t always made with the community’s best interest in mind.
SOCIAL SERVICES
The City of Richmond, as the only urban center in East Central Indiana, is the primary provider of social
services for a rather large region consisting of nearly 85,000 people. This spatial pattern creates challenges
for both providers and clients. For the providers, resources may be limited relative to the service area, because
municipalities outside of Richmond do not contribute to these services. For clients not located in Richmond,
services are inaccessible if transportation is not available, and a need for ongoing services may even necessitate
a change in residence.