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COMPREHENSIVE PLAN LAND USE
XIV. LAND USE
COMPREHENSIVE PLAN VISION STATEMENT
The City of Richmond will implement a balanced land use strategy that provides for a
sustainable community of thriving neighborhoods, business areas and civic places that
comprise an outstanding quality of life and physical environment. The City will expand in a
manner which conserves the natural land resources and integrates new development in ways
which minimize negative impacts and provides for a healthy ecosystem. As the city grows
outward, it will also strongly encourage growing inward through redevelopment and
reinvestment in older areas. The Downtown will continue to be emphasized as the City’s
government, cultural, retail and entertainment center. Walkable neighborhood commercial
areas will be supported; pedestrian and bike connections will be emphasized; transit oriented
development will be promoted concurrently with the exploration of light rail; office development
and industrial development will be a priority especially in the Northwest quadrant; mixed
use, traditional development and clustered patterns of development will be emphasized where
appropriate, culminating in a long term sustainable growth philosophy for the City of
Richmond.
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XIV. LAND USE
A. Introduction
City officials create land use plans for protecting the character of a community as it grows. New
development is an asset only if it contributes to rather than detracts from the welfare of the
community. 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.
A land use diagram divides the land into a mosaic of zones, with each zone representing a
specific land use. There are different zones for different uses, with rules for what is acceptable to
build on each. All new construction must be compatible with what is acceptable for the zone
that it is to be built. City officials use zoning laws as a means of enforcement in order to protect
the assets and character of the community. Land use plans are to guide zoning and not vice versa.
This chapter explains and defines each of the land use designations on the Existing Land Use
Map, while it explains the definition and characteristics of each designation. The emphasis in
this chapter is on defining the form, function, and development that is permissible for each land
use. This chapter also provides recommendations for locating and citing new land use elements
and their components.
Definition of Land Use Plan
A land use plan presents the policies regarding the extent, intensity, and type of physical
development. It typically includes an analysis of existing land patterns by use category, an
examination of the amount of vacant land, and the percentage of each land use that makes up the
composition of the community. A future land use plan represents the direction of growth and the
expected type of uses. The rationale for land use planning includes the following:
· Accommodate future needs
· Provide for orderly growth
· Provide sound basis for short-range decisions
· Provide an official position that property owners can count on to enable
consideration of cumulative and secondary offsite effects of individual development
proposals
The adoption of a land use plan as part of a continuous planning process enables a balanced and
comprehensive review of incremental zoning amendments. Successful implementation of the
goals and objectives of a plan requires regular re-evaluation of recommendations. This on-going
planning approach is essential to assure appropriate flexibility, since it is impossible to
determine the exact location of all land uses in advance of need and development.
B. Goal and Objectives
Goal
Encourage a variety of coordinated land uses to meet the needs of a diverse and sustainable
community with thriving neighborhoods, business areas, and civic places that can provide the
opportunity for a wholesome life in a dynamic environment for its residents.
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Objectives
1. Coordinate a balance of land uses throughout the city and the two-mile fringe area to
promote a diverse and sustainable community.
2. Develop and encourage economic development driven land uses to build the tax base.
3. Promote the design of new neighborhoods that are based on smart growth guidelines
where appropriate and reduce the need to travel long distances to fulfill basic needs.
4. Promote open space preservation and green spaces.
5. Protect environmentally sensitive areas within the City including wellheads and
aquifers.
6. Conserve natural resources, such as the Whitewater River Gorge, Cardinal Greenway
and existing woodlands. Integrate the natural resources into adjacent developments in
ways that minimize negative impacts and provide for a healthy ecosystem.
7. Develop and connect pedestrian and bike connections.
8. Support land uses that promote the expansion of educational and institutional facilities.
9. Support and promote agricultural uses, value added agricultural uses and appropriate
residential uses in agricultural areas.
10. Encourage development patterns that offer the efficiencies of density and a mix of uses
including single-family developments and commercial areas.
11. Integrate a mix of people and housing in neighborhoods and encourage new development
in older neighborhoods to be consistent with the existing development in those areas.
New developments will include a mix of housing types. Pedestrian connectivity and
safety will be a primary concern for all new and existing developments.
12. Encourage inward redevelopment and reinvestment of older central areas as the City
grows outward.
13. Develop design review criteria and processes to help manage design aesthetics, including
curb cuts, streetscaping, signage, building setbacks, building mass, building materials,
parking and other standards that can be managed through design overlay districts.
14. Promote the integration of landscape buffers in new development plans to separate and
provide a aesthetic transition commercial, industrial and residential uses.
15. Develop site design standards and review processes for multi-family residential
developments in established neighborhoods to ensure the urban fabric and pattern of
these established neighborhoods is maintained with new development.
16. Develop rural open space transition standards between industrial, commercial, and
residential uses.
17. Develop land use districts / overlay zones to better coordinate and transition land uses.
18. Emphasize Downtown as the City’s government, cultural, and business center – and as a
preferred location for housing in mixed-use buildings.
19. Encourage infill development strategies wherever possible that minimize sprawl,
promote mixed-use development and public greenway space.
20. Study zoning and land use along the major routes to determine appropriate
opportunities for adaptive reuse and redevelopment.
Development Controls
1. Adopt and develop design review guidelines and regulations for zoning and subdivision
controls, and/or incentives to encourage coordinated development.
2. The City of Richmond, surrounding jurisdictions, and unincorporated areas are to
establish a collaborative relationship for decisions about land use planning.
3. Conduct research of growth management, development controls, and other nationally
used methods to analyze the best methods for the City to develop new standards.
4. Review existing annexation policies for the City of Richmond and develop policies that
support the capital improvement plans.
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C. Existing Land Use
Issues and Findings
For the purposes of this planning initiative, the City was divided into quadrants to better
represent the detail and development of the community. There is an existing land use map,
located at the end of this chapter, depicting the City of Richmond, with a narrative in this
section describing the general land use patterns and zoning of the city.
The land use categories shown on the existing land use map were developed as a standard to
organize and define the different land uses. General categories and definitions were developed
that fit general land use types including: Residential, Commercial, Office, Industrial,
Agricultural, Green Space, and Institutional.
Land-Based Classification Standards system of the American Planning Association, which is an
update of the 1965 Standard Land Use Coding, was used as a guidance tool to organize and define
the existing land uses of Richmond. The standards provide a consistent model for classifying
land uses based on Activity, Function, Structural Character, Site Development Character, and
Ownership of the land. The following definitions describe the guidance standards:
Activity refers to the actual use of land based on its observable characteristics. It describes what
actually takes place in physical or observable terms (e.g., farming, shopping, manufacturing,
vehicular movement, etc.). An office activity, for example, refers only to the physical activity on
the premises, which could apply equally to a law firm, a nonprofit institution, a courthouse, a
corporate office, or any other office use. Similarly, residential uses in single-family dwellings,
multi-family structures, manufactured houses, or any other type of building, would all be
classified as residential activity.
Function refers to the economic function or type of enterprise using the land. Land-use terms,
such as agricultural, commercial, and industrial refer to enterprises. The type of economic
function served by the land use gets classified into a dimension; it is independent of actual
activity on the land. Enterprises can have a variety of activities on their premises, yet serve a
single function. For example, two parcels are said to be in the same functional category if they
belong to the same enterprise, even if one is an office building and the other is a factory.
Structural character refers to the type of structure or building on the land. Land-use terms
embody a structural or building characteristic, which suggests the utility of the space (in a
building) or land (when there is no building). Land-use terms, such as single-family house, office
building, warehouse, hospital building, or highway, also describe structural characteristic.
Although many activities and functions are closely associated with certain structures, it is not
always so. Many buildings are often adapted for new and different uses. For instance, a single-
family residential structure may be used as an office.
Site development character refers to the overall physical development character of the land. It
describes "what is on the land" in general physical terms. For most land uses, it is simply
expressed in terms of whether the site is developed or not. But not all sites without observable
development can be treated as undeveloped. Land uses, such as parks and open spaces, which
often have a complex mix of activities, functions, and structures on them, need categories
independent of other dimensions. This dimension uses categories that describe the overall site
development characteristics.
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Ownership refers to the relationship between the use and its land rights. Since the function of
most land uses is either public or private and not both, distinguishing ownership characteristics
seems obvious. However, relying solely on the functional character may obscure such uses as
private parks, public theaters, private stadiums, private prisons, and mixed public and private
ownership. Moreover, easements and similar legal devices also limit or constrain land-use
activities and functions. This dimension allows classifying such ownership characteristics more
accurately.
Existing Land Use Categories
These are descriptive land uses and do not reflect the actual zoning of the property.
· Agricultural: This category includes land for the use for farming or for the raising of
livestock. Agricultural activities include crop propagation, dairying, stock animal, and
poultry.
· Agricultural/Residential: This category includes land for farming as described above
with 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 with in 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, operate at late hours, have obtrusive lighting and other adverse
constraints.
· Industrial/Transportation/Landfill/Manufacturing: This broad category includes areas
deemed appropriate for light/heavy industrial uses, which 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 infrastructure related uses for
electricity, gas, and water services such as power plants, sewage treatment plants, and
landfills.
· Community Facilities: These land uses serve and meet community needs through a
wide range of recreational facilities, funeral parlors, indoor recreation facilities, outdoor
recreation facilities, residential care facilities, hostels, disability housing, childcare
centers, parks, and cultural facilities.
· Institutional: Uses that include churches, places of sacred and religious affiliation,
cemeteries, hospitals, civic or religious uses, schools, public/private schools,
colleges/universities.
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· 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, golf courses, and greenbelts.
· Water Tower: Land dedicated to a water tower structure or use.
· 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. This category includes
vacant land zoned for apartments and other residential buildings, commercial and
industrial land, vacant streets and alleys, and industrial railway land.
Summery of Existing Land Uses
Richmond is known for its vast farmlands and agricultural
areas that surround the city core. The fertile Whitewater
Valley of Richmond provided settlers with endless land to
cultivate beginning in the early 1800's. Wayne County and
Richmond farmers continue this tradition today, with a
strong agricultural base in grain (corn, soybeans, oats,
wheat, and canola), beef, pork, and poultry. Notably,
Richmond has prided itself on being a farming community
for over 200 years and should continue this tradition by
developing policies and strategies to preserve its
agricultural community. Agriculture is redefining itself in
the market place with concepts such as agricultural
tourism, or agri-tourism, area farm concepts that improve
the incomes and potential economic viability of small farms
and rural communities. Agricultural tourism operations
provide a bridge between urban and rural dwellers.
Another concept is community-supported agriculture that
supports local farmers through farmer’s markets, and
selling their products locally, versus shipping them across
the country. These concepts in progressive agriculture are
defined below.
Value-added agriculture, is defined as “A change in the physical state or form of the
farm product (such as milling wheat into flour or making strawberries into jam); the
production of a farm product in a manner that enhances its value, as demonstrated
through a business plan (such as organically produced products); or the physical
segregation of an agricultural commodity or product in a manner that results in the
enhancement of the value of that commodity or product (such as an identity preserved
marketing system). Value-added is any activity or process that allows farmers to retain
ownership and that alters the original agricultural product or commodity for the purpose
of gaining a marketing advantage. Value-added may include bagging, packaging,
bundling, or pre-cutting.
Source: waynet.org
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Agri-Tourism is based on attracting visitors to farm operations. It is comprised of
businesses such as crop and animal farms, U-pick operations, wineries, aquaculture and
for-fee fishing operations, Christmas tree farms, herb farms and greenhouses, maple
syrup and cheese producers, and farm stands. This may include the opportunity to assist
with farming tasks during the visit. In America, Agri-tourism includes any farm open to
the public at least part of the year. Tourists can pick fruits and vegetables, ride horses,
taste honey, learn about wine, shop in gift shops and farm stands for local and regional
produce or hand-crafted gifts. Farms offer a unique and memorable experience suitable
for a tourism-related experience. Agri-tourism is being developed as a valuable
component of a business model to support many agricultural entities when the farm
products produced are no longer economically competitive.
Community Supported Agriculture (CSA) is a partnership between consumers and
farmers in which consumers pay for farm products in advance and the farmers commit to
supplying sufficient quantity, quality, and variety of products. This type of arrangement
can be initiated by the farmer (farmer directed) or by a group of consumers.
Confined Lot Feeding Operation (CAFO) is defined in the Indiana Code 13-11-2-39, as
the confined feeding of animals for food, fur, or pleasure purposes in lots, pens, ponds,
sheds, or buildings where animals are confined, fed, and maintained for at least forty-five
(45) days during any twelve (12) month period; and ground cover or vegetation is not
sustained over at least fifty percent (50%) of the animal confinement area. Confined
feeding operation, as defined in IC 13-11-2-40, means any confined feeding of at least:
three hundred (300) cattle; six hundred (600) swine or sheep; or thirty thousand
(30,000) fowl.
Sustainable Agriculture According to the Food, Agriculture, Conservation, and Trade
Act of 1990 (FACTA), Public Law 101-624, Title XVI, Subtitle A, Section 1603, Sustainable
Agriculture is defined as an integrated system of plant and animal production practices
having a site-specific application that will, over the long term:
· Satisfy human food and fiber needs
· Enhance environmental quality and the natural resource base upon which
the agricultural economy depends
· Make the most efficient use of nonrenewable resources and on-farm
resources and integrate, where appropriate, natural biological cycles and
controls
· Sustain the economic viability of farm operations
· Enhance the quality of life for farmers and society as a whole.
The City of Richmond and the two-mile fringe area need to embrace sustainability in its
agricultural community and explore progressive agricultural practices. Sustainable agriculture
should be explored as a valuable component of the community. Sustainable agriculture can help
support the existing agricultural community within the area and redefine the farming industry to
remain economically competitive.
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Though the agriculture industry has dropped more than 60 percent in Richmond since 1990 and
2000, the number of acres devoted to farmland is still high in Wayne County. The State of
Indiana has almost 30 percent of the duck industry and just over 23 percent of the popcorn
industry. Ranked high in number of farms, Indiana also ranked in the top 20 for land area in
acres. Wayne County is 66 percent occupied by farmland. There were 850 farms in Wayne
County and 198 in the Richmond area in 2000. Richmond’s farms have a low value of sales, with
81% of the farms making less than $50,000 a year. Almost all of the land west of the Clear Creek
is good for farming. There is another large portion in the southeast quadrant in the southeast
corner of the city boundary.
Value of Sales per Number of Farms - Richmond
Less than $50,000 $50,000-249,999 Greater than $250,000
161 29 8
Source: 2002 Census of Agriculture
Rankings for Richmond, Indiana 2002
Number of Farms 13th
Land Area in Acres 20th
Ducks 1st
Popcorn 2nd
Tomatoes for Processing 2nd
Egg-Type Chicks Hatched 2nd
Ice Cream Production 2nd
Source: 2002 Census of Agriculture
Low-density single-family residential uses surround the City on its south, southeast, northeast,
north, and northwest sides. Major activity nodes, that typically are mixed-use in nature, are
found at several key locations along U.S. 27, west on U.S. 40, Downtown and along I-70.
Commercial, civic, and residential uses continue in the Downtown, which is the City’s major
activity center. Commercial nodes are found along the City’s major corridors and small
neighborhood commercial nodes are found at a few key intersections.
Industrial development continues to be the focus of the northwest and east-U.S. 40 and I-70
corridor- areas where highway and rail access are located The east side industrial area has a
concentration of distribution and warehousing facilities and food and consumer goods
manufacturing, while the northwest area also includes light manufacturing, assembly, and
warehouse and distribution.
A significant amount of green space is shown on the existing land use map along the Whitewater
River/Gorge area and along the Cardinal Greenway. These areas represent Richmond’s open
spaces that transect the City and are maintained as the most outstanding natural resources.
D. Future Land Use
Introduction
The focus of the Future Land Use Plan is to balance residential and non-residential growth with
an emphasis on strategic opportunities that fulfill a specific need as determined in the
Comprehensive Plan. A balance in growth means that residential development will continue as
the demand for housing grows. Industrial and office development will be high priorities, as will
appropriate new investment in the Downtown.
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The Future Land Use Diagram at the end of this chapter should be used when applying land use
recommendations to specific sites. The Future Land Use Diagram builds upon the current
development pattern within the City. Higher density residential development is found within
the core with lesser densities transitioning to the rural landscape that surrounds the City.
Moderate densities are found in the U.S. 27 and U.S. 40 corridors. The Department of
Metropolitan Development should be contacted regarding interpretations.
The Comprehensive Plan strongly recommends a concept that is based upon a mix of land uses
and densities within developments. Seven concept development districts have been created for
Future Land Use decisions. These development districts are based on a mix of land uses within
each area and are visually represented on the Future Land Use Diagram. Best practice examples
illustrate examples of the types of development that can occur within the districts.
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Euro Development mixed land use development can create a desirable
environment for the transition zones within the western two mile fringe
area surrounding Richmond.
Rural Office/Industrial
Development Complex - Ireland
1. Euro Development
Euro Development is a name chosen by the consultant to represent a type of development
prevalent in many European cities. As these cities evolved, they merged dissimilar land uses due
in part to the limited land development options. Over time, these cities turned to innovative land
planning and architecture to provide exceptional environmental qualities for these places
regardless of the clash of various land uses. This development model serves well for American
cities now facing issues of growth and supporting infrastructure that impact the quality of the
shared environment and life of the citizens of Richmond and Wayne County. Euro Development
is a mixed use transitional development targeted for the west side of Richmond. This approach
can act as a development model where agricultural, industrial, commercial, and residential uses
can co-exist comfortably. Greenspace and recreational opportunities are woven into this rural
mixed-use environment to soften the impacts of industrial uses while providing a transition into
adjoining neighborhoods. The images below show examples of this blending of uses that create
an extraordinarily enjoyable place to live and work. These developments foster a sense of
community in which people live, work, and play in the same area. While these places are still
somewhat dependent on automobile or other forms of vehicular transportation, the variety of
uses and integration of open space provides for a truly integrated and desirable environment.
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Quality landscaping can provide effective buffering between dissimilar land uses
Open and recreational space provide a transition between uses that can used
by residents and commercial occupants alike
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Paris, France Office Building Rendering
2. Med Tech Village
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 institutional expansions taking place
on the Indiana University East and Ivy Tech campuses along with the recent relocation of the
Reid Medical Center to this area, Richmond can guide and shape future adjacent land to take full
advantage of this economic development opportunity.
The intersection of Rt. 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 signing 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.
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Gateway into Cincinnati, Ohio
Gateway into Detroit Bridge, Michigan
Decorative Bridge
3. Gateway to the City
Gateways are an important demarcation point for an entrance into a city. These design elements
let visitors know they are entering a place that is unique and memorable. The City is accentuated
and set apart from the surrounding areas. 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 as shown in the images below.
Gateway elements can be landscape treatments along a road, special bridge treatment 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.
· The Intersection of U.S. 40 and I-70 – Located on the east side of the city this area should
be developed and designated as the gateway to Richmond from Ohio.
· The Intersection of U.S. 27 and I-70 – Located on the north side of the city’s more
industrial area.
· The Intersection of Williamsburg Pike and I-70
· National Road at the Western Border of Richmond – This is the main entrance to
Richmond from the neighboring city of Centerville.
· Rt. 27 at the Southern Border of Richmond – This gateway represents the entrance into
Richmond from more areas that are rural to the south.
These gateways should be accentuated so that all visitors realize they have entered into a special
area, they have entered the City Of Richmond. These gateway treatments should be developed
with design elements unique to the City of Richmond so as to represent the City as a destination
and not just another place along the interstate. The gateway elements should all have a analogous
design so as to relate to each other and become a consistent theme.
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Whiting, Indiana
Beaufort, South Carolina
4. Center City
One of Richmond’s greatest potential development opportunities lies in its wonderful older
neighborhoods. These unique historic neighborhoods offer home buyers the opportunity to buy
above average size homes on tree lined streets within easy walking or driving distance from retail
districts, employment centers and downtown. As the future of Richmond unfolds through the
blueprint spelled out in this Comprehensive Plan, special attention should be focused on
innovative housing improvement and development programs to infuse new investment and
energy into these tremendous neighborhoods.
First time home buyer programs, historic property development incentives, renovation grants
and low interest loans, real estate tax abatement programs and other incentive offerings should
be explored to ascertain that these treasured residential districts are preserved and elevated as
prestigious addresses for area buyers.
It will be important to time the programming strategically so as to capture a reinvestment
momentum allowing huge strides in the perception and increased real estate value to be
recognized by existing residents and new homebuyers. Reinvestment into the center city
neighborhoods addresses several long-term goals of the Comprehensive Plan:
· Sustainability
· Urban Expansion
· Reduction of Sprawl
· Owner Occupied Housing
· Promotion of Family Friendly Urban Living
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5. Airport Transit Development
Airport development is a crucial part to any city’s economic growth and prosperity. Airports
provide a tremendous incentive for companies interested in having a base of operations within a
manageable distance from an airport. Airport related developments can consist of hotels,
corporate headquarters, distribution centers, car rental services, and warehousing centers. The
City of Richmond should market this community asset to gain the maximum economic benefit
for the area. The City of Richmond should designate the area along SR 227 by the Richmond
Municipal Airport as an airport development area. This would encourage the infrastructure
expansion and office and technology uses to support the Richmond Municipal General Aviation
airport.
Evanville Regional Airport
Ireland Industrial
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Central Indiana Development
Greenspace & Trails
6. Green Acres
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 agri-
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.
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7. Rural Open Space Transition Area
This transition area will allow agricultural uses to be adjacent to residential uses. This transition
area surrounds the City and generally will act as a transition or buffer area where the municipal
boundaries meet the two-mile fringe area. The purpose of this zone is to protect rural open space
areas, allow for residential development to occur adjacent to agricultural uses, and provide a
transition of uses and densities. Agricultural uses permitted will allow value- added farming and
will not include confined feed operations.
Minneapolis, Minnesota
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Strategies and Recommendations
L U 1. Maintain a Reasonable Land Use Balance to Reflect the Vision of the Comprehensive
Plan
Maintaining a land use balance within a community is very complex. It is important to balance
non-residential and residential development to ensure sufficient tax revenues are generated to
support residential development – since residential development generally does not support
itself from a revenue standpoint. It is critical to provide a supply of undeveloped land to ensure
that development opportunities beneficial to the City will take place – particularly economic
development. It is important to improve the balance between owner- and renter-occupied
housing to increase homeownership, thereby building wealth and stability in the community.
The City has become a magnet for rental property and this has become unsatisfactory to the
development of the community. It is critical to balance the needs of development with protection
of irreplaceable open space and rural farmland.
L U 1.1 The City will continue to emphasize industrial and office development to build
the tax base and generate revenues sufficient to support residential development. Office
development will be emphasized where the market supports such development.
Recognize office development and industrial development as a priority, especially in the
northwest and northeast parts of the city, to take advantage of highway and rail access.
L U 1.2 The City supports single-family residential development, and less dense districts
for the purpose of developing single-family housing in those areas that are not zoned for
residential development and in which single-family development is an appropriate land
use.
L U 1.3 Support neighborhood commercial areas. Each neighborhood should have a
“center,” a walkable neighborhood commercial area, and/or a mixed-use center that can
be safely reached on foot or on bike. These centers should have a character that is
appropriate to its neighborhood context, preferably one that is consistent with the City’s
own unique character.
L U 1.4 Open space preservation continues as a high priority of the City. The City of
Richmond should continue to provide ample parkland, open space reserves, and
conservation easements for residential, mixed-use, and non-residential developments, as
appropriate. Stream corridors and floodplains should continue to be a priority for
continuous systems of interconnected open space and conservation easements.
L U 1.5 Institutional uses are supported in their long-term plans for maintaining and
expanding facilities. Measures are taken to minimize expansion-related impacts on
adjacent properties. New facilities and campuses are integrated into adjacent areas to
provide seamless transitions.
L U 1.6. Agricultural land uses will include land for the use of farming or for the raising of
livestock. Agricultural activities include crop propagation, dairying, stock animal, and
raising poultry. Agricultural uses will not include confined feeding operations. Value -
added agricultural uses, agri-tourism and community supported agriculture should be
considered as uses in the Agricultural areas or in the Rural Open Space Transition
Concept Development District.
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L U 1.7. Identify and protect environmentally sensitive areas within the City and protect
the resources including wellheads and aquifers.
L U 1.8. Restrict undesirable land uses such as automobile repair, adult businesses,
recycling centers, and food processing to areas with sufficient buffering and distance
from other uses.
L U 2. Promote Appropriate Density/Intensity of Development to Ensure Future
Development is Sustainable
The City of Richmond should promote, consider, and approve developments that follow the
density requirements and intensity of uses that are sustainable and fit with the strategies and
recommendations of the Comprehensive Plan. The City of Richmond should administer the
application of the adopted development policies and procedures, with sound planning principles
and flexibility to ensure that unforeseen circumstances and opportunities are properly
considered in the overall context of the Comprehensive Plan.
L U 2.1 Densities will be highest in the core of the City. Infill development and
redevelopment will support the role of the Downtown by matching or even exceeding
the density of surrounding properties.
L U 2.2 Somewhat less dense development surrounds the core in the City’s historic
neighborhoods. Infill and redevelopment will match, but not exceed, densities in these
neighborhoods.
L U 2.3 Residential densities are recommended to lessen as one moves away from the
core of the community. This is a means of transitioning to the semi-rural landscape that
surrounds the City.
L U 2.4 In general, the density/intensity of development is compatible with the general
characteristics of the area in which the development is located. Changes in
density/intensity are supported if they enhance the viability and character of the area.
L U 2.5 Higher density/intensity may be supportable at key intersections and other
locations that are appropriate for intensive activity. But, the design and execution of
such development must be of high quality and integrate with surrounding areas.
L U 2.6 Higher density/intensity will be supported in projects that mix uses and seek to
create a pedestrian oriented environment.
L U 3. Continue to Require Appropriate Land Use Transitions to Ensure New Development
is Compatible with Existing Areas
Land use transitions – at the community, neighborhood, or property level– must be appropriate
to minimize negative impacts and to provide for a well-integrated community. Proper transitions
ensure a rational land use pattern that is consistent with the City’s vision of itself.
L U 3.1 Land use transitions will be consistent with the Future Land Use Diagram.
L U 3.2 Appropriate land use transitions that successfully integrate mixed-use
developments that can include single-family neighborhoods with multiple-family uses,
office uses, institutional uses, technology and medical uses, parks and recreation, and
open space uses.
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L U 3.3 Develop landscape buffers and transition requirements through zoning or other
development controls for agricultural, residential uses and industrial uses occurring
adjacent to or within close proximity of each other.
L U 4. Encourage Creativity in Site Design
The City expects future development to use creative site design to accomplish the following
objectives. These approaches should be used in designing sites.
· The preservation of outstanding natural features (woodlands, ravines, stream corridors).
· A mixture of residential units and densities within the same development.
· Vehicle, pedestrian, and bike connectivity.
· The full application of neo-traditional/smart growth principles.
· The use of clustered/open space development to preserve open space.
· Mixed uses and various densities.
E. Development Standards and Regulations
Issues and Findings
Development Controls
Like most communities, the City of Richmond employs a variety of regulatory strategies to
protect its character and its resources. Land use regulations are enforced under the City’s police
powers, and are necessary to protect the health, safety, and welfare of the community.
Zoning
Zoning is the legal mechanism for controlling and regulating uses in a community. Zoning is the
most important method of land use regulation undertaken by local governments. It divides a
jurisdiction into geographically contiguous zones. The local zoning code prescribes what may be
done in each zone and what may not be done. Zoning is universally regarded as part of the
government’s ‘police power’. The police power is the authority to legally implement land
development regulations. Zoning must be consistent with a comprehensive plan. This allows a
community to shape its residential environments and their property-tax base.
F. Zoning
Issues and Findings
Existing Zoning
The existing zoning and the existing zoning map for the City of Richmond regulates how land is
currently regulated by use and illustrates the City’s current development patterns. The Common
Council of the City of Richmond issued the current zoning code in 1968 and the last amendment
occurred in 1994. The City of Richmond zoning code regulates all land within the corporate
boundaries and the land area immediately surrounding the corporate boundary known as the
“Two-Mile Fringe” which consists of four unincorporated areas, including Center, Wayne,
Boston, and Webster townships. Zoning and subdivision control codes are the primary tools
commonly used to implement local comprehensive plans. The State of Indiana Code 36-7-4
empowers cities, towns, and counties to adopt and implement zoning. The municipal boundary
of Richmond and the two-mile fringe boundary area are depicted on the base map of Richmond.
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Richmond Zoning Code
The City’s current land use regulations (zoning and subdivision codes) are nearly 40 years old
and have been amended frequently since the original passage. As a result, the regulations
resemble a patchwork of rules that are disjointed, difficult to interpret, and sometimes
conflicting. While the regulations may have served the City well decades ago, they no longer
provide the modern tools needed to implement the Comprehensive Plan or keep pace with
today’s development techniques. A formal set of design guidelines may be a necessary tool to
further address issues regarding the design and construction of future development. These design
guidelines could be applied citywide or limited to key areas or corridors. This plan recommends
the current Zoning Code be revisited following the adoption of the Comprehensive Plan. It is
typical for plans to raise zoning issues or make recommendations for implementation strategies
that require new or modified development codes.
Zoning Administration
The City of Richmond Department of Metropolitan Development, Planning Division administers
and enforces the Zoning Code, based on applications submitted. Mayor Sally Hutton established
the City’s Department of Metropolitan Development in 2005 to integrate the work of
Community Development, Planning, and Permits & Inspections. The City Planner advises the
Plan Commission and Board of Zoning Appeals on projects that involve a change of zoning,
variance of use or variance of development standards. The Comprehensive Plan, convincing
evidence of a hardship, and modern planning practices guide the advice given by the City
Planner. The Building Commissioner oversees code violations and permits for new construction
in the city.
Two-Mile Fringe Area
The Wayne County Plan Commission reviews projects in Wayne County. The County reviews
the projects that are outside of Richmond corporate limits, but within approximately 2 miles of
the city limits. This is an arrangement agreed to by the Wayne County Commissioners and the
City of Richmond in 1978.
Indiana Code
The Indiana Code 36-7-4-205 is state law regulating Richmond’s authority to implement zoning
and subdivision regulations for the unincorporated areas that lie outside of the corporate
boundaries of Richmond known as the two-mile fringe. On June 6, 1978, the Richmond Plan
Commission filed and recorded the petition to request this authority from Wayne County. On
July 12, 1978, the Wayne County Plan Commission heard Richmond's petition and voted to make
a favorable recommendation to the County Commissioners for approval. On July 17, 1978, the
County Commissioners voted to approve the request to allow Richmond to exercise zoning
control in the 2-mile area. The excerpt from the Indiana Code explains regarding the jurisdiction
over contiguous unincorporated areas is below:
IC 36-7-4-205
Establishment; extent of territorial authority of comprehensive plan; inclusion of contiguous
unincorporated area; incorporation of new towns in county
Sec. 205.
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(a) ADVISORY. A municipal plan commission shall adopt a comprehensive plan, as
provided for under the 500 series of the advisory planning law, for the development of the
municipality. For comprehensive plans adopted after July 1, 1999, if:
(1) the municipality provides municipal services to the contiguous
unincorporated area; or
(2) the municipal plan commission obtains the approval of the county legislative
body of each affected county; the municipal plan commission may provide in
the comprehensive plan for the development of the contiguous
unincorporated area, designated by the commission, that is outside the
corporate boundaries of the municipality, and that, in the judgment of the
commission, bears reasonable relation to the development of the
municipality.
(b) ADVISORY. Except as limited by the boundaries of unincorporated areas
subject to the jurisdiction of other municipal plan commissions, an areas designated under
this section may include any part of the contiguous unincorporated area within two (2)
miles from the corporate boundaries of the municipality. If, however, the corporate
boundaries of the municipality of the boundaries of that contiguous unincorporated area
include any part of the public water or shoreline of a lake (which lies wholly within Indiana),
the designated areas may also include:
(1) any part of those public water and shoreline of the lake and,
(2) any land area within two thousand five hundred (2,500) feet from that
shoreline.
(c) ADVISORY. If any part of the contiguous unincorporated area within the
potential jurisdiction of a municipal plan commission also within the potential jurisdiction
of another municipal plan commission, the first municipal plan commission may exercise
territorial jurisdiction over that part of the area within the potential jurisdiction of both
municipal plan commissions that equals the product obtained by multiplying a fraction, the
numerator of which is the area within the corporate boundaries of that municipality and the
denominator of which is the total area within the corporate boundaries of both
municipalities times the area within the potential jurisdiction of both municipal plan
commissions. Furthermore, this commission may exercise territorial jurisdiction within
those boundaries, enclosing an area reasonably compact and regular in shape that the
municipal plan commission first acting designates.
Advisory Board of Zoning Appeals
The City of Richmond further administers the zoning code through a decision-making body
known as the Advisory Board of Zoning Appeals that consists of a five-member board. Their
duties are to hear, determine, approve, and deny special exceptions, variances, and appeals from
the zoning code or an administrative official, hearing officer, staff member, or administrative
board designated by the code. There duties are executed at public hearings.
The Advisory Board of Zoning Appeals can grant variances of use or development standards due
a physical hardship of the site or structure that doesn’t affect public health, safety, comfort,
morals, and convenience or general public welfare. A petition must be made before a hearing and
advertisement of the change can commence.
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Zoning Classification Summary
The City of Richmond zoning map shows how land is currently being used and current
development patterns. This map shows that the majority of the land use is dedicated to General
Industrial with a ring of multiple and single-family residences around the central core. The
majority of the area outlying the central core is zoned (A-1) Agricultural District with some large
areas of (O-1) Greenbelt District and (M-2) General Industrial District. The zoning map at the
end of this chapter was created using information from Geographic Information Systems for
Wayne County, the City of Richmond and Indiana Spatial Data Portal. Additional information
was compiled by field verification. The zoning classifications for the City of Richmond are
defined below.
A-1 Agricultural Districts: Land for the use for farming or for the raising of livestock. In
Richmond, the land zoned A-1 is primarily located in the southeast portion of the city and two-
mile fringe area. The A-1 districts are usually large plots of land located away from business or
commercial centers. Other permitted uses within the A-1 district can include single-family
dwellings, institutional structures, and recreational areas. The allowable densities are one
dwelling unit per acre and two units per acre for other principal uses.
A-1 AGRICULTURAL DISTRICT
Lot
Area
Lot
Width
Front Yard
Depth
Side Yard
Width Each
Rear Yard
Depth
Acres Feet Feet Feet Feet
Dwellings 1 200 75 40 40
85
Other Principles Uses 2 200 75 40 40
85
Source: City of Richmond Zoning Code 1994 as Amended
0-1 Greenbelt Districts: Greenbelt Districts are geographic areas of the city that contain land-
use patterns or environmental characteristics that do not fit traditional zoning classifications
density standards or uniform bulk regulations. Because of the special land uses, special
development standards and procedures are necessary to maintain the integrity of these areas,
allow for greater flexibility in site design, and achieve specialized goals for the area.
Permitted uses include agricultural buildings, one-family dwellings, and recreational areas such
as Hayes Arboretum and areas located along the Whitewater Gorge. The lot area requirements
for residential units are a minimum of two acres per unit and five acres of lot area for other
permitted uses.
O-1 GREENBELT DISTRICT
Lot
Area
Lot
Width
Front Yard
Depth
Side Yard
Width Each
Rear Yard
Depth
Acres Feet Feet Feet Feet
Dwellings 2 200 50 50 50
Other Permitted Uses 5 300 50 100 50
Source: City of Richmond Zoning Code 1994 as Amended
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Residential Districts: The residential districts are intended to provide a range and balance of
housing types to meet the needs of the city’s residents. Density or number of dwelling units per
acre, lot area, lot width, building height, yard standards, accessory uses, parking, and
redevelopment standards are regulated. Single-family dwelling areas can either be detached or
part of a subdivision development but cannot exceed two and one-half stories in height. Single-
family residences are located throughout the City of Richmond.
Other permitted uses include institutional buildings, public service buildings, medical and dental
offices. Density restrictions for residential uses are based on square footages. For single-family
units, the minimum lot area restrictions range from a minimum of 500 square feet per unit to
20,000 square feet per unit.
R-1 ONE FAMILY RESIDENCE DISTRICT
Lot Area Lot
Width
Front Yard
Depth
Side Yard
Width Each
Rear Yard
Depth
Sq. Ft Feet Feet Feet Feet
Dwellings 12000 80 30 10 30
Other Permitted Uses 20000 100 30 20 40
Source: City of Richmond Zoning Code 1994 as Amended
Multi-family areas include residences with two and three family dwelling units and apartments
that are also located in all areas of the City, with the majority located in the southeast quadrant.
This district also allows mobile home parks, professional offices and/or home occupations,
motels, and funeral homes. For multi-family units, lot restrictions range from 5,000 square feet
per unit to 500 square feet per unit.
R-4 MULTI-FAMILY RESIDENCE DISTRICT
Lot
Area
Lot Area Per
Family
Lot
Width
Front
Yard
Depth
Side
Yard
Width
Each
Rear
Yard
Depth
Floor
Area
Ratio
Sq. Ft Sq. Ft Feet Feet Feet Feet
Dwellings
1 Family 5000 5000 50 25 8 30 -
2 Family 6000 3000 50 25 10 30 -
Multi-Family 14000 500 100 25 16 40 2.0
Other Principles
Uses
20000 150 25 20 40 -
Source: City of Richmond Zoning Code 1994 as Amended
Commercial Districts: Commercial District areas include retail, office, and business
establishments. Commercial Districts provide controlled settings for office, business, and
commercial development. They enhance employment opportunities, encourage the efficient use
of land, enhance property values and tax base, and encourage high quality of design in office and
business/commercial developments. Building height, lot size, yard requirements, lot setbacks,
and impervious surface ratio are regulated by the zoning code for commercial districts.
The commercial districts include a wide range of commercial uses and services that are located
apart from residential districts. Other permitted uses in the Commercial Districts include motor
vehicle service, various retail, and restaurant uses.
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C-1 LIMITED COMMERCIAL DISTRICT
Lot Area Lot
Width
Front
Yard
Depth
Side Yard
Width Each
Rear Yard
Depth
Acres Feet Feet Feet Feet
Non-
Residential
None None 20 None; except when
adjoining an A or R
District – then not
less than ten (10) feet
None; except when
adjoining an A or R
District – then not less
than ten (10) feet
Residential Same as
required in
R-4
Source: City of Richmond Zoning Code 1994 as Amended
Business Districts: Businesses are primarily located in the central core or along main
thoroughfares, including the downtown area, along NW 5th, and along the I-70 exit in the
northwest part of the City. The permitted uses include offices, businesses, and retail
establishments. This District does not permit residential uses and has no density requirements.
Other permitted uses in the business districts include laundries, garages and parking lots, and
used car lots.
M-2 GENERAL INDUSTRIAL DISTRICT
Lot
Area
Lot
Width
Front
Yard
Depth
Side Yard
Width Each
Rear
Yard
Depth
Sq. Ft Feet Feet Feet Feet
Non-Residential None None 20 None; except when adjoining
an A or R-District – then not
less than thirty (30) feet
35
Residential Uses Not
Permitt
ed
Source: City of Richmond Zoning Code 1994 as Amended
Industrial Districts: Industrial Districts are intended to provide appropriate locations for
fabrication, processing, packaging, distribution, storage, and other transportation activities.
These Districts are also aimed for contributing to the economic base of the city, to enhance
employment opportunities, to encourage the efficient use of land, enhance property values and
tax base and improve the design quality of industrial areas. This District also does not permit
residential uses and has no restrictions for non-residential use density requirements.
The majority of industrial districts are located in the northwest quadrant with some small areas
in the rest of the quadrants. These districts can include junkyards, airports, and vehicle impound
storage areas.
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VISUAL ENHANCEMENT DISTRICTS
Lot
Area
Lot
Width
Front
Yard
Depth
Side Yard
Width Each
Rear Yard
Depth
Sq. Ft Feet Feet Feet Feet
Non-Residential 30 None; except
when adjoining an
A or R- District –
then not less than
fifty (50) feet
1-story 40 ft. 2-
stories 50 ft. 3-
stories 60 ft. five (5)
ft. more for each
additional story
Residential Uses
Source: City of Richmond Zoning Code as Amended 1994
Visual Enhancement District: The Visual Enhancement District identifies certain areas of the
City to be developed with special landscape regulations. The Visual Enhancement (VE) district
areas in Richmond that have landscape regulations regarding species of plant material permitted,
the density of plantings, the landscaping of water run-off structures, and the requirements for
visually enhancing the site consistent with the manufactured materials chosen by the developer
to be installed upon the site. The VE District regulations are considered with the existing zoning
district requirements. Any application for an Improvement Location Permit under the Zoning
Code, which involves property located in a VE district, shall be referred to the Commission staff
for purposes of convening a meeting of the Site Review Committee. The applicant shall submit a
site plan to the Committee and be personally present or represented by an attorney at the
Committee’s meeting to review the site plan.
The following areas are designated on the Richmond Zoning Map as Visual Enhancement
Districts.
· Chester Boulevard and U.S. 27 North bordered on the South by the north boundary of
Spring Grove Corporation and on the north by Tingler Road and extending 250 feet to
the east and 250 feet to the west from the center line of said Chester Boulevard and U.S.
27 North.
· The corridor generally known as South 8th Street, South 9th Street and U.S. 27 South
bordered on the north by South A Street and on the south by Farlow and Beelor Roads and
extending 250 feet to the east and 250 feet to the west or to the first alley in either
direction, whichever is the shorter distance, from the center line of said South 8th Street,
South 9th Street and U.S. 27 South.
· The corridor generally known as East Main Street and U.S. 40 bordered on the west by
North and South 10th Street and on the east by I-70 and extending 250 feet to the north
and 250 feet to the south or to the first alley in either direction, whichever is the shorter
distance, from the center line of said East Main Street and U.S. 40.
· National Road West and U.S. 40 bordered on the west by Airport Road and on the east
by Southwest 1st Street and extending 250 feet to the north and 250 feet to the south or
the first alley in either direction, whichever is the shorter distance, from the center line of
said National Road West and U.S. 40.
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· Northwest 5th Street and Williamsburg Pike bordered on the north by I-70 and on the
south by National Road West, acknowledging herein that the south end of said corridor
is actually Southwest 5th Street, and extending 250 feet to the east and 250 feet to the
west or the first alley in either direction, whichever is the shorter distance, from the
center line of said Northwest 5th Street, Southwest 5th Street and Williamsburg Pike.
· Sim Hodgin Parkway bordered on the north by Chester Boulevard and on the south
by Southwest 1st Street, and extending to the west edge of Whitewater River to the
east and 250 feet or Morton Street or Northwest 1st Street or Southwest 1st Street
to the west from the center line of said Sim Hodgin Parkway.
Zoning Summary by Quadrant
Northwest – This quadrant is located west of US-27 and north of National Road. The zoning is
primarily (M-2) General Industrial towards the northwestern part of the quadrants. Residential
units for single- to multi-family are scattered close to the downtown area and located south
along National Road.
Northeast – East of U.S. 27 and north of East Main Street/National Road East. The northeast
quadrant can be analyzed in two parts. The north part is zoned primarily residential (R-2) One
Family Residence District and (R-1) One Family Residence District with (C-2) Commercial
along U.S. 27. The southern portion of the quadrant along Main Road is zoned (O-1) Greenbelt
with pockets of residential areas within the quadrant. R-3 zoning is clustered around the central
city core where the traditional grid-street pattern occurs. Between Elks Country Club Road and
30th Street there is Residential zoning – R3, R-2 situated in-between the (O-1) Greenbelt district
where the Glenn Miller Park and the Hayes Arboretum are located. On the east end of Main
Street, there is a stretch of (C-3) Central Business District Zoning and (M-2) General Industrial
District zoning located along Main Street and Interstate-70. A patch of Multiple Family
Residence District Zoning occurs along Woodside Drive between Gravel Pit Road and Hayes
Arboretum Drive. Part of the east fork of the Whitewater River runs through this quadrant.
Southwest – The southwest quadrant is mainly residential. The Whitewater Gorge flows through
it creating (O-1) Greenbelt along both its banks. There is (M-1) Light Industrial districts located
in the southeast corner and commercial uses along the major thoroughfares.
Southeast – The southeast quadrant is split up into large areas of different zoning types. The
largest area is (R-2) One Family Residential with (R-3) One to Eight Family Residential close to
the downtown quadrant. To the east of the R-2 zoning, there is (R-1) One Family Residential,
(R-4) Multi-Family Residential, Industrial, and then a small corner of (A-1) Agricultural. Along
Main Street there are C-3 and C-4 Commercial Districts.
Downtown – Located in the center of the city, just east of the Whitewater Gorge and north of
Main Street the downtown quadrant is zoned (C-3) General Business District and (O-1)
Greenbelt along the Whitewater Gorge. There is some (M-1) Light Industrial with a small area
devoted to (R-3) One to Eight Family Residential.
Current zoning within the 2-mile fringe of the City of Richmond is not very diverse. The majority
is (A-1) Agricultural District with some large areas of (O-1) Greenbelt District, including along
the Whitewater Gorge and (R-2) One Family Residence Districts throughout. There is very little
land within the city limits that is currently zoned for (C-1) Limited Commercial District while
most (M-2) General Industrial District encompasses the majority of the northwest quadrant. The
zoning for Richmond follows the standards that were set forth by the State of Indiana.
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Strategies and Recommendations
Z O 1. Richmond Zoning Code
The Zoning and Subdivision codes are not user-friendly. Several changes are suggested to
substantially improve the user’s ability to read and understand the requirements.
· Reorganize the documents, putting like provisions together under common headings
· Add graphics to illustrate essential definitions and provisions that are difficult to
understand or visualize (setbacks, yards, height, etc.)
· Incorporate tables or schedules to simplify regulations for signs, parking, and district
area requirements
· Change the numbering system and add chapters/articles to facilitate references to
specific provisions
Z O 2. Eliminate the “pyramid” zoning hierarchy in which all uses in more restrictive districts are
automatically allowed in each successive (less restrictive) district.
Z O 3. Include a “purpose” statement at the beginning of each district to clearly establish the
intent and parameters of that district and distinguish it from others.
Z O 4. There should be a greater distinction between the commercial districts. Each should serve
a distinct purpose, be applicable to specific situation, and differ from one another in terms of the
uses permitted and the character to be achieved. The Commercial districts could be organized
into overlay districts with a specific design, density and use criteria.
Z O 5. All definitions should be consolidated into the “definitions” section, rather than scattered
throughout the code. Several terms are defined in two different sections and the definitions are
not the same. Regulatory language should be removed from the definitions and inserted in the
appropriate location elsewhere in the code.
Z O 6. A chapter/article entitled “general provisions” should be added to encompass many of the
regulations that are scattered throughout the code and have no other relationship to one another.
Z O 7. The planned unit development (PUD) provisions in the zoning code are poorly organized
and difficult to follow. There are contradictions in the regulations and the process should be
simplified. More specifically, the lack of specific conditions and standards opens the PUD
process to potential abuse. While PUD can be a useful tool to encourage and permit creativity
that benefits both the owner and the City, it is not appropriate in all cases and is not intended to
be a convenient substitute for conventional zoning. In addition to the above, the following
elements of the PUD provisions should be addressed:
· PUD should not be an overlay district. “Overlay” implies stricter regulations on top of
those already applying to the underlying district. That is not the case with PUD.
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· The code should establish minimum-qualifying conditions for all PUDs to ensure the
intent is met and PUD is not used as a means of circumventing the conventional
requirements of the zoning code. Examples of qualifying conditions for all PUDs include
minimum parcel size, minimum open space requirements, conformance to the land use
recommendations and goals of the Comprehensive Plan, availability of water and sewer,
minimum setback requirements, location on specific classes of streets (e.g., major or
minor arterials and collectors.
· The code should contain specific standards by which the Plan Commission and Common
Council will evaluate the PUD request. Suggested standards would include: conformance
with the qualifying conditions, density and uses consistent with the Comprehensive
Plan, compatible with surrounding uses and the natural environment, adequate capacity
of roads and utilities to serve the proposed development, consistency with intent and
purpose of PUD, conformance with all minimum requirements of a PUD a resulting
project that benefits both the developer and the community.
Z O 8. The City needs to apply and implement the provisions for “districts” identified in the
code, including the visual enhancement district, flood hazard district, aquifer protection district,
and special use district. These districts are not reflected on the existing City zoning map. The
City should consider alternative approaches in lieu of creating multiple special purpose districts.
Z O 9. Define the purpose of the district and give guidance as to where it should be established in
the City of Richmond. Show the locations governed by the VE District in the City of Richmond
on the zoning map.
· There should be specific landscaping requirements. The code states that “development
guidelines” will be adopted, but they are not in the code, if they exist at all.
Requirements, consistent with a stated purpose for the district, should be contained in
the zoning code and referenced in this section.
· There should be standards developed by which a decision can be made to approve or
deny a project. This lends itself to arbitrary and inconsistent treatment of requests. It is
essential that review standards be included in the code to establish clear, predictable,
and unequivocal rules for decision-making.
Z O 10. The sign provisions of the Zoning Code should be completely revised. The provisions are
very generous in terms of the number and size of signs permitted. Many of the requirements are
difficult to interpret. There are conflicting definitions, for example, section 154.13.90 defines
“advertising signs” as essentially off-premise, while section 154.43.04 defines them as on-premise
signs. Billboard regulations are overly permissive, allowing billboards to be located virtually
anywhere within property zoned C-4, M-1, or M-2. Specific location criteria should be
established to further limit the potential locations of billboards (e.g., along major arterial roads,
only as a principal use on a parcel, etc.)
Z O 11. Standards should be incorporated into the zoning code for all such decisions—PUD, site
and plan review. Many of the discretionary reviews lack standards to guide the decision-makers.
Z O 12. The Subdivision Code and Zoning codes should be redeveloped to incorporate the goals
and objectives of the plan.
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G. Subdivision Controls
Issues and Findings
Richmond Subdivision Control Code
The following comments are offered regarding the City’s Subdivision Control Code and its
relationship to the Comprehensive Plan. Like the Zoning Code review, this is not intended to be
an exhaustive analysis of the code, but does identify some of the more problematic provisions
that should be addressed to facilitate implementation of the Plan.
In general, the Subdivision Control Code should be completely revised. The Code does not
support key goals and recommendations of the Comprehensive Plan relative to encouraging
appropriate neighborhood scale and interrelationships, providing for access control along major
streets, or promoting a pedestrian friendly community.
Strategies and Recommendations
S C 1. Richmond Subdivision Code
The Subdivision Code should be rewritten as suggested below to better serve the community and
regulate the design standards for subdivision developments.
· The definition section should be revised to better define key terms and to eliminate
overlap. For example, the terms “Master Plan,” “Public Development Plan,”
“Comprehensive Plan,” and “Public Improvement Plan” are all used in this section and are
redundant. The term “Comprehensive Plan” should be used and defined.
· “Executive Secretary” is used to refer to the Planning Director. To avoid confusion, it may
be more desirable to use the term “Planning Director.”
· Section 153.03(a)(2) describes the requirements for “Development Unit Projects.” These
provisions should be deleted and moved to the Zoning Code.
· Section 153.03(b)(2)(B) specifies the fee for subdivision applications. This should be
removed in order to facilitate the City’s ability to revise fees without amending the code.
It would be sufficient to state that a fee must be paid in accordance with the schedule of
fees established by the City.
· Section 153.03(b)(5) should provide for approval of the primary plat with conditions.
· Section 153.06 contains standards for plats, but frequently uses ambiguous phrases, such
as “foreseeable difficulties,” “suitably improved,” “related appropriately,” “properly
integrated,” “as much as possible,” and “more effective”. The standards should be as
precise as possible to allow the applicant to understand the requirements, in advance,
and to ensure consistent treatment of all requests.
· Section 153.06(c)(1)(A)(i) refers to the City’s Construction Standards for streets.
However, Section 153.06(c)(2)(A) contains many specifications for streets.
· Section 153.06(c)(1)(D)(ii) should contain standards for cul-de- sac blocks.
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· The provisions of Section 153.06(b)(3)(B) should be incorporated into Section
153.06(c)(1)(E) so all access-related requirements are in one place.
· The term “reserve strips” should be defined.
· The 30-foot minimum width for a minor street should be reviewed. A distinction should
be made between residential and non-residential streets. Minor residential streets could
be less than 30 feet. This is clearly the trend in residential subdivisions.
· The buffer strip requirements of Section 153.06(c)(2)(C)(i) should be in the Zoning
Code.
· Section 153.06(c)(2)(E) states that “bridges of primary benefit to the applicant” must be
paid for by the applicant. Primary benefit is an ambiguous term that should be defined or
somehow quantified.
· Section 153.06(c)(2)(F)(ii) should incorporate standards to guide the determination by
the Plan Commission or Plat Committee when requiring the widening, realignment, or
dedication of a roadway.
· Section 153.06(d)(2)(D) refers to the County Surveyor. Change this reference to County
Engineer.
· Section 153.06(f)(1)(B) addresses minimum lot size requirements for lots with private
water and/or sewer systems. These requirements would more appropriately be placed in
the Zoning Code.
· Section 153.06(h) requires sidewalks under certain circumstances. Within a City, such as
Richmond, it seems that sidewalks should be mandatory. While some areas may not
already have them, that condition should not be perpetuated. As a policy, consistent
with the City’s Comprehensive Plan, sidewalks should be required for all development to
ensure the community is and will be “walkable.”
· Section 153.06(j)(1) requires the dedication of parkland within subdivisions. This should
be revised to give the City the option of accepting such lands as public parks or having
them owned and maintained by a neighborhood association of similar private entity. The
City may not want the on-going cost of maintaining small pocket parks throughout the
City.
· Section 153.06(l)(1) and provisions in the Zoning Code should cover (4).
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H. Annexation
Issues and Findings
Annexation is the absorption of territory by a municipal corporation from an unincorporated
area of another jurisdiction. It is a method of adjusting local governmental boundaries as areas
urbanize. Beginning in 1921, Richmond began annexing surrounding unincorporated territory
into the municipal boundaries and has thus grown to 25.49 square miles. The Richmond
Annexation map at the end of this chapter illustrates the pattern of annexation of land since 1921
through 2005. As of 2005, approximately 32.09 miles of land area occupies the area known as the
two-mile fringe. It is important to the community’s interests that areas appropriate for
annexation growth are clearly identified and agreed upon. Development opportunities will
present themselves that are located outside of the Richmond municipal boundaries that may be
in the community’s interest to annex. These opportunities must be weighed carefully and
decisions made as to whether the community can support the development in terms of
infrastructure services. The City of Richmond should be prepared with annexation policies,
capital improvement plans, and infrastructure agreements for the continued expansion of its
corporate boundaries.
Strategies and Recommendations
A N 1. Establish General Guidelines for Supporting Annexations
The City will establish general guidelines that indicate how annexation will be supported. The
guidelines will define criteria for annexation, the review, and approval process.
A N 2. Require Consistency with the Capital Improvement Plan (CIP)
The infrastructure recommendations in the CIP should fully match the future annexations. In
particular, utility extensions should only be made to serve these areas and not to open new areas
to development unless doing so strategically fulfills other goals of the Comprehensive Plan. In
cases where public health will benefit or system improvements will serve the entire community,
additional extensions may be made.
A N 3. Review Existing CIPs
The Metropolitan Development Department, Richmond Engineering Department, Sanitary
District, Street Division, Indian American Water Company Utilities and Finance Departments
review the CIPs and recommend modifications to the CIPs to be consistent with the
Comprehensive Plan, and, as appropriate, for water and sanitary sewer extensions to match
annexation policies developed. Planning Commission and City Council consider the
recommendations and approve the adjustments. Provide consistent review policies for Wayne
County and two-mile fringe area.
I. Land Use Maps
1. Existing Land Use
2. Zoning
3. Existing Conditions and Opportunities
4. Conceptual Land Use Diagram