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HomeMy WebLinkAboutFoldoutGOALS, OBJECTIVES AND POLICIES Introduction Goals, objectives and policies of the 1985 Uodatt with minimum modifications represented a consensus of community opinion on comprehensive planning issues for the 1991 Amendment. For the purposes of this Summary Poster, general development goals and policies are presented and are followed by specific ob- jectives. General Dei elopmentir tale Goal 1 - A living environment of high quality and diversity The attractive and functional design of buildings and areas can have positive economic and psychological, as well as aesthetic, effects. Good design of residential, commercial, industrial areas and open spaces can reduce costs while at the same time increase the value of the community as a place to live/work/shop. Goal 2 - A sound, balanced, and diversified economy The result of economic development in Carmel/Clay Township should be an economy that is sound. This means that fluctuations in some sector of the nation- al and regional economies do not bring about severe dislocations involving high unemployment rates or venous losses of incomes. Principally, this means an economy should not depend too heavily on any one industry. The economy must be fid. First, it must provide employment opportunities for a range of skills and preferences: second, it must provide a base for adequate public revenues, primarily through taxes. It must be diversified for most of the reasons cited above and to avoid the severe effects of economic fluctuations. Goal 3 - Protection of the natural environment and reduction of all types of pollution The quality of Carmel/Clay Township's natural en- vironment should be protected from development that proceeds without regard for the natural limita- tions of land. Goal 4 - Reduction of the ratio of public costs to revenue Public programs should be aimed at the most effi- cient use of public resources to attain public goals. Public dollars should be cautiously reserved for ser- vices and facilities for which the private sector will not respond nor be expected to respond. Goal 5 - A stable and united community Development policy should be aimed at solidifying and strengthening the concepts of "community" and neighborhood.- Goal 6 - Spring Mill Road Corridor To support the Carmel Comprehensive Plan and its goals, objectives and policies as they relate to the Spring Mill Road corridor area: and to define specific objectives and policies to secure the con- tinuation of Spring Mill Road as a residential cor- ndor. General Development Policiec Policy 1 - Development should be encouraged to use vacant land within areas that have ex- perienced intense levels of development where streets and infrastructure are presently in place. This policy and Policy 2, which follows, will en- courage development that makes maximum use and most efficient use of existing public facilities and services. Policy 2 -The level of development intensity that should be encouraged should be based on the level of existing/planned access/highways, the suitability of soil and topographic conditions and the availability of necessary services. This policy should be the principal guide to the level of development density throughout the area. Clear- ly. no level should be permitted to exceed that level which can be supported by available services unless the capacity of the services can he increased at reasonable cost --for example, by widening a road or constructing additional classrooms for a school. Policy 3 - Development patterns that result from market forces should be permitted and en- couraged where they are compatible with other policies. Policies should be implemented that correspond with normal economic forces. If not, these policies tend to be expensive in terms of time and effort unless they are based on some important community need. Policy 4 - Large-scale developments should be encouraged when they are well-planned and par- ticularly when they include such amenities as utilities, thoroughfares. public open space and/or recreation facilities. Large-scale planned developments provide an en- vironment supenor to developments consisting of many individually built facilities. The advantages of large-scale planned developments exist because they provide combinations of facilities that tend to rein- force and strengthen each other. Policy 5 - Development shall maintain and protect the residential nature of Spring Mill Road from the western boundary of the 31 corridor to Spring Mill Road. Uesclopnient shall re:ognize the existing unique and extensive tree cover in this corridor by preserv- ing a generous amount of this existing tree cover in conjunction with new replacement plantings as an integral part of a required development plan. Development shall also maintain the natural beauty of the roadway by replacing lost trees and incor- porating landscaping into road improvements plans. Driveway or access road cuts shall be limited on Spnng Mill Road. Provisions for the dedication of open space for any development occurring in the Spnng !Mill Road corridor area should also be estab- lished. Specific )bj tec iyes The preceding five basic policies form a framework for the rational development of land within CarmeUClay Township. Higher densities should be near main thoroughfares and business centers: lower densities should be in areas of poorer soils and poorest acces- sihility Throughout all of these areas, developers should be encouraged to produce varied and efficient designs at the largest scale possible. The use of site plan reviews is to be encouraged to ensure the quality of development. Consistency with the following com- munity objectives should be reviewed as pan of this process. Residential Development The growth and improvement of Carmel/Clay Township's residential areas are vitally important. The high quality neighborhoods should be protected from the effects of spreading nonresidential activities and disinvestment: the neighborhoods in poorer condition should be protected from further deterioration and development policies which encourage renewal should be addressed. Objective 1 -Encourage the best possible living environment in residential areas. Residential neighborhoods should be attractive, safe and healthy, with open space and a minimum of through traffic. Where possible, natural amenities such as greenbelts, tree stands, creeks and drainage courses should be accessible and visible to the public from public fights -of -ways and roadways within or on the periphery of neighborhoods. Subdivisions should be designed so that a minimum of private lots adjoin these amenities. Residential support ac- tivities such as limited shopping, schools and chur- ches should be located in proximity to residential areas. Access between these areas and residences should be provided. This could include bicycle and pedestrian trails along drainage courses and green belts. Deteriorating residential areas should be en- couraged to improve through suitable zoning and/or code enforcement Objective 2 -Maximize compatibility of residen- tial areas with the natural assets of the landscape. Construction of residential areas should take max- imum advantage of the opportunities offered by the area's natural conditions and should not contribute to soil erosion or the destruction of major tree cover. To facilitate achievement of this objectee, the Plan- ning Commission and City Council should consider the adoption and enforcement of a Tree and Open Space Preservation Ordinance which would be in- THOROUGHFARE CONDITIONS Introduction As requested by the Comprehensive Plan Steering Committee, significantly greater emphasis has been placed on thoroughfare planning in the 1991 Amend - men( than was included in the 1985 U te. This IM Amendment uses selected land use scenarios as a basis for developing traffic forecasts to guide thoroughfare planning. A target year modeling technique was not used in this update since an appropriate simulation model is un- available and its development is beyond the resources available for this limited update activity. Instead, generalized traffic levels have been estimated to cor- respond with three land use scenarios. These estimates are intended to guide the thoroughfare plan develop- ment process by providing three "reference points" with respect to level of development within Carmel Clay Township. A direct correlation is not intended between the recom- mended thoroughfare plan and any one of the three scenarios investigated. Rather, generalized forecasts for each scenario guide thoroughfare plan development by indicating known conditions (existing wenario). like- ly condition of minimal needs (programmed scenario), and potential ultimate conditions (build -out scenario). Existing Condition Although the thoroughfare plan development process focus is on future needs, current conditions were analyzed to provide a basis for review. Based on generalized criteria relating daily traffic levels to es- timated capacity, existing problems are indicated al- most exclusivelyon U.S. 31 and Keystone Avenue. This is consistentwith rth the perception of local residents, as indicated by the public opinion survey conducted to support the preparation of this 1991 Amendment. Respondents were asked to consider local roadways only (excluding S.R. 421, U.S. 31, and Keystone Avenue). and were asked "What is the location of the number one traffic congestion area you regularly en- counter in Carmel or Clay Township'' In spite of the request to consider local roadways only, 42% of the respondents mentioned Keystone Avenue and 8% mentioned U.S. 31. The emphasison Keystone Avenue reflects the high residential concentrations in western Clay Township. A survey of employees might highlight problems on U.S. 31. Specifically, the Keystone Avenue/Carmel Drive inter- section and U.S. 31 intersections between 96th Street and 116th Street were found to be at or over capacity. During the preparation of this report, construction was underway to widen portions of U.S. 31 and hearings were being held regarding planned improvements to the 1-465/U.S. 31 interchange. These improvements were considered in developing the Thoroughfare Plan in this 1991 Amendment process. Available 24-hour traffic counts did not indicate capacity problems at other locations in Carmel and Clay Township. More detailed analysis ordinarily per- formed for specific projects (considering peak -hour traffic flows, turning movements, and localized geometric data) may indicate problems not identified in this review. Traffic Growth Tren The only Clay Township roadways included in a regular counting program are U.S. 31 and Keystone Avenue (S.R. 431). Traffic counts are taken every three to four years on these routes by INDOT. The most recent counts were taken during July 1989. The graphs on the right illustrate peak -hour traffic growth trends, by direction, for Keystone Avenue and U.S. 31, respective- ly. The following observations can be made regarding the growth trends illustrated by these figures: • U.S. 31 is now the most heavily travelled roadway in Carmel. This has changed since the 1985 Com- prehensive Plan Update. • Keystone Avenue was most heavily influenced hs residential growth during the 1980s. Traffic growth corporated under existing Subdivision regulations and review procedures Objective 3 - Maintain the residential nature and integrity of Spring Mill Road from 96th Street to 146th Street. Assure that when. and as. residential development occurs along Spnng Sfill Road. the quality of the existing natural environment will be preserved and the growth in the volume of traffic -111 he minimized. Commercial Dei els m nt Commercial and office growth will continue at a healthy rate. Commercial development objectives should ad- dress the quality. mix, scale and location of this activity. Objective 1 - Commercial development should provide the maximum possible ratio of benefits to public costs. Commercial centers should be of high quality. They should require relatively low expenditure for public services by being concentrated rather than scattered for a more efficient application of police and fire protection, water supply, waste disposal, and other public services. Objective 2 - Commercial activities should be encouraged in locations that will provide con- venient service. Care should he taken to permit comement service to all areas of the City. Commercial services for emerging office centers should he provided. Objective 3 -Promote a pattern and design of commercial areas that minimizes interference with traffic on major thoroughfares. Commercial areas should be designed to reduce their adverse impact on residential areas and avoid interference with traffic flow on adjacent thorough- fares. Objective 4 -Continued enforcement of the Car- mel Sign Ordinance should be maintained as new commercial activities develop in the area. Compliance with the Sign Ordinance is important for achieving and maintaining an aesthetically pleas- ing environment. industrial Developm nt Light manufactunng, warehousing and research have the potential to account for a larger proponion of the Cannel/Clay Township economy. The arca is presently developing a diversified economic base. This diver- sification should be encouraged to continue for a heal- thy, stable economy. Industrial recruitment should focus on those industries which can he accommodated in enclosed structures. Operations where the majority of floor area is devoted to office areas, research and development facilities, lab space, warehouse/ showroom space. etc. are recommended. Industrial development with manufacturing. warehousing, or dis- tribution as its pnmary purpose should be discouraged when such development could adversely impact existing residential areas. Objective 1 -Promote industries serving markets beyond the boundaries of Carmel/Clay Township. Industries serving widespread markets will bring more income into the area, and these markets will be more stable because regional economic fluctua- tions will have less of a total effect on them. Objective 2 -Promote growth in industries serving markets beyond the boundaries of Carmel/Clay Township. The CarmeliClay Township economy has the poten- tial to be dominated to some degree by substantial office development occurring along Meridian Street. New activities that produce products or serve other markets should he encouraged. Objective 3 -Encourage growth in industries that will provide the most favorable ratio of public revenues to public costs. There is a preference for those industries with the highest ratio of capital investment to employment. The most highly capitalized industnes are usually those with the highest-paid workers. Open Space and Recreation Balance among a variety of locations and types of recreation facilities is proposed for Carmel/Clay Township. In the 1991 Amendment this concept is has been gradual, and the historic commuting pattern of heavy southbound (work) trips in the morning peak and northbound (horse) trips in the evening peak continues to characterize Keystone Avenue traffic Flow. • U.S. 31 was most heavily influenced by adjacent com- mercial development during the 198(►s. This is dramatically illustrated by the growth of northbound traffic during the morning peak hour, when work trips are most predominant. There were almost three times as many northbound trips in 1989 than there were in 1981. During the eight -)ear period, southbound traffic during the morning peak hour increased by almost half. • For the first time (in 1989). northbound U.S. 31 traffic volumes exceeded southbound volumes south of 116th Street during the morning peak hour. Whereas U.S. 31 has always served as a commuter route from Carmel to Indianapolis, it now serves that function nearly equally in each direction. It is sig- nificant to note that the high level of surplus capacity available for "reverse commuting- during the 1980s no longer exists. There is insufficient data available to identify traffic growth trends on other major roadways in Carmel and ClayTownship. This does not hinder forecasting, since future traffic volumes in this study are estimated based on land use characteristics rather than on past traffic growth trends. —MORNING PEAK HOUR TRAFFIC VOL MU E KevslO Ave IS R 4311 N of 96th St. Iso. :000 • „oo — e• «: - ----- - ------- s« i ,o...a,,, 11 ,8 ,s Bo 81 82 8) N Bs _ 011 _ 89 " further reinforced with the recognition that not only should open space and recreation areas he provided as pan of the development process, but that thesespaces represent resources of community -wide interest and as such should be linked through the a network of green belts along drainage courses. boulevards, and other forms of public rights-of-way to each other and other recreation amenities in the community. Objective 1 -Promote a full range of recreational facilities/programs responsive to the needs of all residents. A vaneq of open space and recreation facilities convenient to residential areas. including open space interpretive areas, parks and play -spaces should be provided. These facilities should be linked as indicated on the Land Use and Circulation Plan through a system of publically, elts. accessible green b buffers, open space and other linkages. Objective 2 -Parks and recreational facilities should be provided in locations that offer con- venient services to residential areas of the City/Township. The recreation system should be widely distributed and linked throughout the City and Township through a network of hike/bike trails and/or sidewalks to provide accessibility. Community Facilities and Services Carmel/Clay Township's public facilities and services include a wide variety, of functions. These objectives and Policies apply to public services relating to physical development. Objective 1 - Provide a high level of public service at a reasonable public cost. It is important to the area's continued progress that all public services --schools, police, fire, public works and others --be continued at high levels because the quality of services available within the community is one of its main attractions. At the same time, land development controls should be exercised to keep the cost of operation of public services reasonable. Objective 2 - Public services and utilities should be located and administered to reinforce the other objectives of the Comprehensive Plan. Public services and utilities should be provided on the condition that the facilities served meet accept- able development standards. They should not generate traffic in excess of street capacities or pol- lute the air and water, and they should protect the natural environment. Additionally, a review of existing service plans for transportation, water and wastewater system capacities, service areas and improvements should be reviewed to assess consistency with achieving 1991 Plan goals, objectives, policies, and desired patterns of land uses and densities. Circulation Developing and upgrading major thoroughfares in the City and Township are the public's responsibilities and the private sector's. Objective 1 - Provide a safe and efficient circula- tion system at a reasonable cost. Objective 2 - Minimize disruption of living areas by the thoroughfare system. Savings in cost and increased efficiency of the area's circulation system should not be at the expense of viable residential neighborhoods or business areas. Objective 3 - Program future transportation route extensions and capacity improvements to chan- nel growth patterns in accordance with the Com- prehensive Plan. Areas in which development is encouraged should have higher accessibility than areas in which development is to be discouraged. Accessibility should consider availability to both public and private transportation. Objective 4 - Recognize the importance of provid- ing landscaped boulevards for major northJsouth and east/west roadways and circulation through the community and image and identity of an area once total buildout has occurred. As contemplated in the 1991 _t ruendment these boulevards would feature landscaped medians and edges as well as protected space for non -vehicular circulation such as hike/bike trails. paths or side walks. poo _ MORNING PEAK HOUR TRAFFIC VOLUME J00° MendIan St IU S 31) S of 116th St poo , 2000 ,000 sw o ••., 22" 79 80 B, 82 93 " 89 K e, 88 89 90 . Proposed Functional Classifications Most of the 1985 Updat text related to functional classification remains valid. The 1991 Amendment suggests changing the name of some classificationsto provide a correlation with the functional classification system of Hamilton County, and additional classifica- tions have been added to allow designation of parkways within Clay Township. In order to make circulation improvement recommen- dations for the City of Carmel and Clay Township, it is necessary to first classify various thoroughfares and streets by function in terms of trip length and purpose, location and level of access provided. Once this func- tional classification has been accomplished, recom- mended minimum geometric design standards can be specified for each functional class to be used as guidelines for upgrading the existing network of thoroughfares and streets. When used in conjunction with roadway alignment proposals, the functional classification system serves as an important guide for determining the extent of new road construction that should be undertaken within a given area proposed for development. Its primary pur- pose is to ensure that sufficiently wide rights-of-way are reserved along the routes of existing and proposed alignments to accommodate anticipated future levels of traffic. RECOMMENDED 20 -YEAR ROADWAY IMPROVEMENT PLAN U COMPREHENSIVE PLAN PROCESS Overview of 1991 Amendment In 1989, the Carmel/Clay Plan Commission contracted with Howard Needles Tammen and Bergendoff (HNTB) to review land use and circulation elements of the Comprehen- sive Plan Update adopted in 1985. For this 1991 Amendment, a Plan Steering Commit- tee composed of appointed representatives from the Plan Commission, City Council, and neighborhood groups, worked together with HNTB to determine priority issues to be addressed. From these initial discussions, it was generally agreed that many components of the 1985 Update were adequate and that work efforts for the 1991 Amendment be focused on issues resulting from develop- ment pressures within the community. Specifically, work for the 1991 Amendment focused on a review of land use, development and transportation issues and their inter- relationships, with special consideration given to undeveloped land, land zoned S-1 and "Transition Areas", as identified in the 1985 Update. Summary Poster Format This Summary Poster has been prepared to record the activities and consensus recom- mendations reached during the 1991 Amendment process. In the interest of familiarity and ease of comparison, informa- tion in the Summary Poster for the IM Amendment is presented in a similar style and order as the 1985 Update. The poster is divided into a series of concise, easy -to -read sections which represent sum- maries of information presented as part of the complete Comprehensive Plan Docu- ment. Sections presented as part of this poster include: • Comprehensive Plan Process • Goals, Objectives and Policies • Development Patterns, Trends and Is- sues • Existing Thoroughfare Conditions and Deficiencies • Official Land Use and Circulation Plan Graphic • Land Use Plan Description • Circulation Plan Description For complete text on each of these sections as well as additional planning information, refer to the 1991 Amendment to the 1985 Comprehensive man Update for Car- meUClayTownshiQ. Copies are available at Carmel City Hall. Plan Development The primary purpose of the 1991 Amend - nlog has been to evaluate, recommend and prepare revisions to the Land Use and Cir- culation Plan presented in the 1985 Update. Regular monthly meetings were held by the Plan Steering Committee. In addition to public input at these meetings, a random DEVELOPMENT PATTERNS Overview The City of Carmel and Clay Township is a predominantly agricultural and residential community which has experienced a significant increase in regional commercial, employment and industrial growth. More densely populated residential development has oc- curred around the original town center and areas to the east and south where adequate transportation and was- tewater service has been available. Lower density residential development has tended to occur in the western portions of the community. Regional commercial and employment growth has oc- curred along the Meridian Street (U.S. 31) corridor at intersections with major anerials such as 1-465 and 116th Street. The northwestern quadrant of 116th Street and Keystone Avenue is another significant con- centration of commercial and employment uses. A large industrial area represented by the Carmel In- dustrial Park, the Cannel Science and Technology Park, and the Meridian Technology Center is located north of 116th Street between Meridian Street and Westfield Boulevard. Other commercial and employment clusters are north of the Keystone Avenue and Michigan Avenue inter- : hanger at 1-465. d Use For the 1991 Amendment, land use data collected as part of the 1985 Update was reviewed and augmented with information from aerial photography prepared specifically for this study as well as discussions with Department of Community Development staff and field observations. Known land uses in the study area which were either present or currently under development were docu- mented as part of this inventory. For the purposes of analysis and comparison with zoning. proposed development, and 1985 Plan information, land use types were generalized into eight primary classifications as established through Steering Committee discussions. Land area calculations and distribution summaries for analysis work were prepared using these eight clas- sifications which are also used for the 1991 Amend- ment Plan presented on the back side of this Summary Poster. Specifically, as illustrated in the "Existing Land Use" graph, areas designated "Agricultural/Residential" comprise the majority of land area occupying ap- proximately 19,300 acres or 56%, within the City of Carmel and Clay Township. Areas designated "Medium Density Residential" compose the next largest land area category occupying approximately 8,200 acres or 24%. Areas designated "Low Density Residential" compose approximately 4,200 acres or 12% of the land area in the City and Township. The remaining five use designations represent ap- proximately 2.700 acres combined and range between EXISTING LAND USE AGRICULTURAL,%RESIDENTIAL A R=56 LOWER DENSITY RESIDENTIAL P SP=. MEDIUM DENSITY RESIDENTIAL I M =2 HIGHER DENSITY RESIDENTIAL RC O_ , LOCAL COMMERCIAL/OFFICE LC 0 -' REGIONAL COMMERCIAL/OFFICE HDR=2 LDR=12 MDR=2 3 sampling of community opinions on growth, development and related issues was con- ducted through a telephone survey. Results of this survey are reported in the report, A Survey of Citizen's Attitudes in Carmel and Clay Township conducted by American Marketmetric, Inc. in August of 1989. Copies of this report are available for review at the Department of Community Develop- ment. The development of new concept plan scenarios comprised a large part of the work effort undertaken for the 1991 Amendment. These concepts were developed to explore future alternative distributions of land use and densities across the community. Investigations prior to the development of sketch plans included the exploration of a number of factors influencingpossible fu- ture land use throughout the Carmel/Clay Township area. These included; existing land use, existing zoning, current land use and thoroughfare plans, utility service poten- tial, environmental considerations, develop- ment proposals, and traffic considerations. From these initial investigations, three con- ceptual future land use plans were prepared to Illustrate distinctly different ways a future land use plan and program of uses could be configured. The three conceptual schemes, as well as the 1985 Plan, all shared a similar distribution in terms of types and quantities of land uses presented. Each scheme, how- ever, explored different arrangements of land use and density across the community according to unique organizing principals. 1% to 2% of the total land area share for any one category. Existing" nisi; The City of Carmel and Clay Township Plan Commis- sion currently maintains zoning authority throughout the planning area. As part of the 1991 Amendment process, comparisons between existing land use and currently zoned were made to determine current development potential of the community without any plan amendments or rezoning petitions. A composite view of zoning patterns in the area was obtained through the grouping of similar zoning clas- sifications into generalized categories similar to those used in the evaluation ofexisting land use patterns. The "ExistingZoning" graph represents the distribution of land area by these generalized categories. The 'Exist- ing land Use, 7.oning and the 1991 Plan" graphic EXISTING ZONING LDR=7' I M=3 RC C: :, LC 0=. HDR:1 MDR=20 Development of a "Consensus Scenario" A variety of sources of input were reviewed in an effort to guide the development of a consensus Land Use and Circulation Plan. These sources included: • Steering Committee comments relative to ideas presented in the three concep- tual land use scenarios • Steering Committee comments regard- ing existing and anticipated traffic problems and acceptable solutions • Input on community -wide concerns and considerations from the Community Attitude Survey • Comments, considerations and guidance by City staff • Results of traffic investigations per- formed as part of the evaluation of land use concepts • Discussions and adoption of the Land Use and Circulation Plan by the Plan Commission and City Council The results of these activities are presented in graphic and text form on the reverse side of this Summary Poster. offers a visual comparison between how acreage in the community is currently being used, how it is zoned and what is proposed under the 1991 Amendment.. Specifically, the majority of land in the City and Township is zoned "S -I". Approximately 20340 acres (or 59%) of the planning area's acreage is zoned ac- cordingly. Land zoned "S-1" and "S-2" (the "Lower Density Residential" category) represent approximate ly 24,500 acres or 71% of the planning area. Land zoned R- 1. R-2. and R-3 comprise the next largest group of land area (the "Medium Density Residential" category) accounting for approximately 6,750 acres or 20% of the total siudv area. Higher density residential as well as the employment related zoning categories account for the remaining 3,150 acres of the planning area. Land zoned B-2, B-5, B-6 or B-8 (the "Regional Commercial/Office" category) is the largest segment of this group and includes 1,200 acres or 3cr of the overall planning area. Proposed DevelODnle Where available, proposed or approved plans for major real estate development proposals in the plan- ning area were obtained and reviewed. The specific purpose behind analyzing information related to proposed developments was to gain a general under- standing of future development which could have the possibility of influencing traffic demand over the next five years and into the future. This information was supplemented by data concerning the number of un- built dwelling units in approved subdivisions. Insight gained from this analysis when combined with an analysis of existing land use and existing zoning led to an understanding of existing trends and issues in the community. EXISTING LAND USES ZONING AND THE 1991 PLAN THOUSANDS OF ACRES 25 ....... 20 1 15 10 ui X A/R LDR MDR HDR SOURCE: HNTB The following functional classifications have been used in the recommended Thoroughfare Plan for Carmel and Clay Township: • Freeways Freeways are used primarily by interstate and intrastate traffic. A beltway such as Interstate 465, however, serves an important local function like that of an expressway, despite its classification as a freeway. A freeway is a divided highway designed to have full control of access, with no traffic crossing at -grade and provides for the movement of high- speed traffic access or service to abutting property. Expressways: Expressways are arterial highways for through traffic, whose main purpose is to move traffic rather than to provide access to individual properties. An expressway is a divided highway with full or partial control of access and a limited number of at -grade intersections. An expressway may be of various types: a facility entirely at -grade: a facility with frontage roads that have controlled -access features and termi- nated crossroads: or a facility that has an occasional at -grade intersection. • Primary Arterials: Primary arterials carry both local and cross -county traffic, link various communities and settlement clusters and move traffic to and from such major traffic generators as employment centers, shopping centers, the downtown area, and other similar traffic generators. Primary arterials carry both intermediate and longer distance traffic, exten- sively utilizing traffic control devices to facilitate traf- fic flow within urban/developed areas. Regulation of driveway access is often necessary. • Secondary Arterials: Secondary arterials are in- tended to collect and distribute traffic to primary arterials. Secondary arterials provide service to specific traffic destinations, allow easy movement from one neighborhood to another within the same part of an urban area, and provide crosstown traffic movement. A secondary arterial is similar to a primary arterial with respect to collecting and dis- tributing traffic. except that a secondary arterial ser- ves smaller traffic -generators such as community -oriented commercial areas. primary and secondary schools, major recreation areas, churches and other similar land uses. LEGEND: Widen/Upgrade New Facility SCENARIOS EXISTING LAND USE EXISTING ZONING F___' 1991 PLAN F ....... IIIIIIIIIIIII_ . LC/O RC/O I/M Collector Streets: Collector streets link local access streets, with secondary and primary arterials. As the name implies, a collector street serves the primary purpose of "collecting" local traffic and delivering it to the next higher -order street. For the purpose of setting minimum geometric standards. the collector clarification of the 1991 Amendment includes former "collector and "local access commercial" clas- sifications. This designation and its associated right of way requirement is consistent with the classifica- tion system of Hamilton County. • Local Streets: Local streets are intended to provide accessto individual properties abutting the street. They also provide additional fight -of -way for place- ment of utility lines, drainage and sewer facilities and on -street parking. Local access streets should be designed to discourage through traffic between neighborhoods. In the 1991 Amendment, the "local" designation replaces the previous "local access - residential" classification. • Parkways Parkways represent a special classifica- tion of arterial roadway. A parkway is a divided roadway with special landscape treatments within the median and along the edges of the roadway. Geometric standards provide for sufficient right-of- way for sidewalks, bike paths, and other amenities in addition to landscaping. Aesthetically, parkways offer an opportunity to enhance the attractiveness of the community as a whole. From a functional standpoint, parkways provide additional Flexibility for meeting future needs. The wider right-of-way provides the opportunity for future expansion by adding lanes to the median, without compromising the basic parkway character of the route. Two parkway designations are used (primary and secon- dary), corresponding to the two arterial classifica- tions described in this section. Specific landscape guidelines for parkways are not provided with this plan. It is suggested that these be developed in cooperation with local groups with an interest in parks and open space, or left as a "challenge" to developers. In either case, education may be neces- sary to gain and maintain public support for the con- cept. Two Lane Roadway _ — Three Lane Roadway Four Lane Roadway • • • • • • • • • • Six Lane Roadway SCALE: 71iiiiiiiii7iii """""""""""""`l`l` � 0 2000' 4000' 8000' US 31 (see text) Intersection Areas Needing Further Study 1• . P/SP R/OS LAND USE DESIGNATIONS CARMEL CLAY TOWNSHIP COMPREHENSIVE PLAN A,'R: AGRICULTURAL,%RESIDENTIAL LDR: LOWER DENSITY RESIDENTIAL MDR: MEDIUM DENSITY RESIDENTIAL HDR: HIGHER DENSITY RESIDENTIAL LC O: LOCAL COMMERCIAL/OFFICE RC/O: REGIONAL COMMERCIAL/OFFICE /M: INDUSTRIAL/MANUFACTURING P/SP: PUBLIC/SEMI-PUBLIC R/OS: RECREATION/OPEN SPACE Proposed Minimum Geometric Standards Minimum design standards are useful not only for regulating construction of new thoroughfares and streets but also for evaluating existing conditions to determine deficiencies and program improvements to existing thoroughfares and streets. The design stand- ards pertinent to this recommended Thoroughfare Plan for Carmel and Clay Township relate to the min- imum right-of-way and pavement width for each func- tional class of thoroughfare. Several of these standards have been modified in the 1991 Amendment process to provide greater consistency with Hamillon Cow standards. These proposed standards are outlined fit the table below: RECOMMENDED MINIMUM GEOMETRIC DESIGN STANDARDS CLASSIFICATION PAVEMENT WIDTH MINIMUM I RIGHT-OF-WAY ON -STREET PARKING Freeway Note (1) Note (1) None Expressway Note (1) Note (1) None Primary Arterial 36'-16'-36'(2,5) 48'(2,6) L20' 100' None None Primary Parkway 24'-56'-24'(2,5) 150' None Secondary Arterial 24'-16'-24'(2,5) 48'(2,4,6) 90' 90' None None Secondary Parkway 24'-30'-24'(2,5) 120' None Collector 30'-44'(3.41 80' Varies (4) 11 LocalI 30'(3) I 50' I Both Sides II Notes: (1) Requirements vary based on conditions. Federal and state standards apply. (2) Measured face to face of curbs. (3) Measured back to back of curbs. (4) In general, lesser number applies to residential streets and larger number applies to commercial and industrial. Requires engineering evaluation of specific roadway sections, including consideration of on -street parking. Pavement width = 12 feet per lane, curb & gutter = 2 feet each side, parking = 8 feet per side. (5) Divided roadway. (6) Undivided roadway. Note: 20 -year time frame is approximate and dependent on development rates. Actual construction of improvements should be based on verified needs. All plans are conceptual and subject to adjustments based on detailed environmental and design studies. It is emphasized that new alignments, as well as freeway interchange locations and configurations will require site-specific engineering studies RECOMMENDED LAND USE AND THOROUGHFARE PLAN LEGEND: New Facility Existing Facility New Facility Existing Facility Lower Density Residential Areas Industrial/Manufacturing Areas ommmm I Collector . _ _ _ _ _ Expressway Medium Density Residential Areas Public/Semi-Public Areas Secondary Arterial ■ ■ ■ ■ ■ Interstate Highway Higher Density Residential Areas Recreation/Open Space NOOSE Primary Arterial1144, Intersection Realignment Local Commercial/ Office Areas 10000001 Special Opportunity Corridors •• • • 0 • • 4 Secondary Parkway Intersection Areas 0 Needing Further Study Regional Commercial/ Office Areas ������ Potential Greenways ■ons ■o■ 11000004 Primary Parkway Right of Way Restrictions XNEEMENEEN (Match Predominant Existing) Note: SCALE: This Land Use and Thoroughfare Plan has been prepared to communicate an illustrative representation of consensus opinion for future roadways and the distribution and density of future development across the community. It is not the purpose of the Plan to indicate exact locations for future 7L��,m� development, specific alignments for new roadways, or precise amount of acreage for any given land use. 0 1(H)o' 3000 5(X)0' LAND USE PLAN DESCRIPTION f the Plan The Land Use and Circulation Plan developed as pan of the 1991 Amendment has been prepared as an il- lustrative representation reflecting a consensus opinion for an overall vision of the distribution and density of future development across the community. The plan offers general directives for areas which are currently unbuilt as well as those areas which are built and may redevelop. The purpose of the graphic and associated planning policies are to be used as one of the elements which guide the management of development in the community. Zoning controls and subdivision proce- dures are also part of this process. Statements of Consensus As part of the planning process, a general synthesis of issues and considerations was formed which repre- sented the consensus of Plan Steering Committee and public opinion on key planning issues. For the purposes of these discussions, the community was divided into three study sections; Western. Central and Eastern. The Western Section of the planning area lies between the Clay Township line and Spring !Hill Road. The Central Section of the planning area is bounded on the west by Spring Mill Road and on the east by Keystone Avenue. The Eastern Section of the planning area lies between Keystone Avenue and the White River. Con- sensus statements for each of these subareas is presented as follows: Western Section: • Land use should be predominantly residential. • Overall residential density should be lowest in com- munity. • A network of connected open spaces is important. • "Neighborhood Serving" commercial areas should be clustered into "nodes", generally located at the inter- section of major thoroughfares, rather than be per- mitted to develop as "strips" along major thoroughfares. • Development along the Highway 421/Michigan Avenue Corridor should be buffered from residential development -to the east. Central Section: • "Transition Zone" designations from the 1985 Un - data should be avoided. Instead. a graduation of use intensity and/or buffers should be employed between areas established for office and commercial develop- ment and areas established for low density residential development. • North/South transportation routes need improve- ment. • Central Section is the focus of commercial, office and industrial development in the community. • The predominant character of land use along Spring Mill Road should be low density residential to the west and more moderate density residential to the east. Eastern Section: • Community services and utilities support more dense development in this section of the community. • 1991 Plan should better reflect environmental con- siderations, such as flood plains. than 1985 Plan. • White River has potential to become an important recreation amenity for Carmel • A network of connected open spaces is important. • Where practical, the creation of "civic nodes" cluster- ing such uses as libraries, churches, police, fire, schools. health care, etc. is appropriate. PrODOsed Land Use Categories In an effort to maintain consistency with the 1985 Plan, land use designations employed for the 1991 Plan remained essentially the same as those used previously. Some additional clarifications have been made regard- ing desired levels of density of development. The Commercial" or "Business" category used on the 1985 Plan has been replaced by two levels of designations to reflect community concerns of compatibility between commercial and residential uses. "Transition Areas" and "Special Uses" are not used in the 1991 Plan. Specific land use categories and associated assumptions for the 1991 Amendment are described as follows: ■ Lower Density Residential ("LDR"): This residential category is intended to provide oppor- tunities for large lots/estate type single family resi- dential development. This category is intended to preserve and maintain open space by limiting develop- ment to this lower level of intensity. The "LDR" plan designation is applied to most of the land area west of Spring !Hill Road with the exceptions in the vicinity of 116th Street and Towne Road. 146th Street and Towne Road, and areaseast of Michigan Avenue. There is also a small area of the plan north of 116th Street and east of River Avenue designated "LDR" similar to the 1985 Plan. Currently, no zoning categories exists which would restrict residential development to densities as low as those contemplated in the 'IDR" plan designation when sanitary sewer service is available. It is the Plan Steering Committee's opinion, however, that a provision for areas of low density residential uses is important to the community. In lieu of rewriting the Zoning Ordinance at this time and/or rezoning any parcels of the land, the Plan Steering Committee has established the following guidelines regarding potential inconsistencies with the "LDR" designation and under- lying zoning: • In areas of the community where this plan designa- tion falls on land zoned 'S-1", it is the intent of the Plan Steering Committee that development density should average no more than 1.5 units per gross acre. • In areas of the community where this plan designa- tion falls on land zoned "S-2", it is the intent of the Plan Steering Committee that development density should average no more than 1.8 units per gross acre ■ Medium Densitv Residential ("MDR"): This level of development recommends more intensive types of single family -residential development at an average density of 2 - 4 dwelling units per gross acre. It is intended to be suburban in character and to provide for infill of vacant developable sites with suitable sup- porting community facilities and services, generally lo- cated between Meridian Street and Gray Road. The category also provides for proposed residential development ar.a� eact of Spring Mill Road to the White River. Development possible under the "MDR" designation would be appropriate as a buffer use between Low Density Residential areas and areas designated for more intense uses such as High Density Residential. Local Commercial/ Office. and Regional Commer- cial/Office. Accordingly, the 1991 Amendment Land Use and Circulation Plan indicates areas of "MDR" development in the vicinities of Local Commercial/ Office nodes in the Western Section of the planning area as well as adjacent to "strips" of Regional Commer- cial/Office areas along Michigan Avenue and !Meridian Street. ■ Higher Density Residential ( "HDR"): This category is intended to provide land for higher density housing types such as apartments, duplexes and townhouses. This category includes both complexes and free-standing units. These areas are intended to pro- vide lands for higher intensity multi -family land use, where there is sufficient access and supporting in- frastructure and is generally used for tracts in the Central and lower Eastern portions of the planning area. Consideration should be given to reducing tratti- building heights and scale that developments in "HDR categories may have on adjoining "MDR" or "LDR areas. All of the re,idential categories presuppose the related uses of community and school facilities and recreation and open spaces. ■ Local Commercial/Office ("LC/O"): This plan designation category is one of two new categories developed for the 1991 Amendment. The category along with a "Regional Commercial/Office category replaces the singular 'Business" category used in the 1985 Update. This change has been made to distinguish between the scale of retail and office development serving residential areas as its primary market verses retail and office development which ser- ves a broader market. This distinction has been made in recognition of the difference in potential building scale, massing. height. parking requirements. and site generated traffic pos- sible under each category. For the purposes of the 1991 Amen m n ­LC/O­ uses have been grouped into nodes for development %frith are intended to indicate appropriate general locations for possible future neighborhood serving commercial development. For the purposes of the plan illustration, these "nodes' are shown at the intersec- tions of some major north/south and east/west thoroughfares where future residential development and transportation improvements might support this type of development. It isnot the purpose of the plan to indicate an exact location(s) for such development nor a precise amount of acreage. Such considerations would be resolved on a case by case basis on the merits of each proposal and the ability to satisfy plan objectives for surrounding land uses. The '1C/O" designation is also used to reflect the lo% wale and residential char- acter of retail establishments along Range Line Road in the Original Downtown. ■ Regional Commercial'Office ("RC/O"): The Regional Commercial/Office category is the second new category added to the 1991 Plan and was created to indicate areas of the plan where development of regional retail and office development is ap- propriate. This category is predominantly used for major tracts of land along the Meridian Street corridor, the 421 Corridor, and existing or future research/office parks in the Central Section of the planning area and along 96th Street east of Gray Road. Techniques such as building set backs, graduated build- ing heights, landscaped or natural buffers, should be used when "RC/O" areas adjoin residential areas. ■ Industrial/Manufacturing ("I/M"): This category includes manufacturing, wholesale and warehouse and distribution uses. The Industrial Cate- gory is recommended to provide land for higher inten- sity commercial uses. This category recommends development in conjunction with the application of strict performance standards in industrial park -like set- tings. Uses recommended under this category should include interregional distribution. light assembly, re- search and development and communications. ■ Public,'Sen1i-Public ("P/SP" ): As part of the 1991 Amendment. designation of areas or sites of schools, churches. cemeteries, hospitals, sanctuaries, and community facilities, services and utilities have been incorporated under a specific plan designation category. For combination sites such as school/park locations, a dual symbol is used. ■ Recreation/Open Space ("R/OS"): This categon recommends areas to be set aside as lands for public open space, parks.—recreation uses and linkage elements. The Plan also recognizes land reser- ves for this category within residential neighborhoods. ■ Special Opportunity Corridors: As pan of the 1991 Plan, two "Special Opponumty Corridors" have been identified to be of public interest. These are. the former L & N Railroad Line and gas transmission pipeline easement. Both of these cor- ridors traverse a significant portion of the community and represent the opportunity to accommodate hike/bike trails along drainage courses and principal destinations within the community. These corridors represent a significant asset which could be maintained for public benefit. Every effort should be made to encourage the establishment of such uses which could benefit a large cross section of the community. New Initiati, The 1991 Amendment Land Use and Circulation con- tains specific recommendations about the need and methods to establish a linked network of green belts and trails as the community develops. Specifically, the Plan states that wherever possible, natural amenities such as greenbelts, tree stands, creeks and drainage courses should be accessible and visible to the public from public rights -of -ways. New subdivisions should be designed in such a way that a minimum of private lots adjoin these amenities. Recreational facilities and other major destinations within the community, should be linked through trails developed as pan of a community- wide linkage system of natural greenbelts, drainage courses, landscaped boulevards and "Special Oppor- tunity Corridors". 1985 and 1991 Plan Comparisons The two pie charts present a graphic comparison be- tween the distribution of land uses as illustrated by the 1995 Updatt and the 1991 Update Land Use and Cir- culation Plans. As evidenced by the graphs, the dis- tri -w ion of Iand use in the 1991 Plan .remains essentially the same as the 1985 Plan. Residential development at moderate and lower densities remains the dominant use for the community comprising 42% and 36% of the total gross land area respectively. The remaining 22% of the land area in the community is devoted to a mixture of business, public, and recreation uses with land designated "Regional Commercial/Of- fice" being the largest single use at 8% of the total. LAND USE DISTRIBUTION 1985 PLAN 1991 AMENDMENT LDR=401 _DR=36f SU=1% TA=3% R/OS=5% R/OS=2% P/ SP -29c I/M-2%. R =4 C/O % RC /0 =8 k LC/04k MDR=41 r- MDR -42 HDR -3% MDR HDR -2f THOROUGHFARE PLAN DESCRIPTION Recommended Thoroughfare Plan The basic elements of the recommended Thoroughfare Plan are designed to serve existing traffic plus estimated new trips from developments approved but unfinished during 1989. In addition. local, collector, and arterial roadway improvements are included to serve localized developments as indicated by estimated traffic from build -out of the Comprehensive Plan. Regional im- provements (U.S. 31 and Keystone Avenue) address modest growth in local and regional traffic demand in addition to needs indicated by existing and approved developments. In recognition of differing area charac- teristics, and for clarity of discussion. Thoroughfare Plan elements are described here in terms of western. central and eastern sections of Clay Township. Western Clay Township (Boone County Line to Spring Mill Road) Both the 1985 ate and the 1991 Amendment of the Comprehensive Plan propose the lowest density of development in the western portion of Clay Township. Principal exceptions are anticipated commercial areas along Michigan Road at the southwestern comer of Clay Township and at unspecified locations near major intersections of Towne Road. An analysis of traffic conditions for build -out of western Clay Township indicates that most of the low density residential development of the area would be well served by the existing system of two-lane roadways. Forecasts indicate that these two-lane local roadways should be connected to the regional highway network by four -lane arterials located at two- to three-mile spac- ing. Consistent with thoroughfare plans for surround- ing areas (including central Clay Township), it is recommended that Towne Road. 116th Street, and 146th Street be widened to four lanes in the future to serve this area. In recognition of the quality of residen- tial areas anticipated for development in western Clay Township, a parkway classification is proposed for these widened roadways. In terms of right-of-way, this would also provide flexibility for expansion over the long term, in case demographic changes result in higher vTuroes�hrough traTv thari wnsidewd here. Two additional network changes are recommended for western Clay Township. Both relate to regional traffic influences outside the county. Michigan Road, as it passes through the comer of Clay Township, is desig- nated as a four -lane primary arterial. This would be suitable to meet Hamilton County needs. Based on growth patterns of Marion County and Boone County. however, a higher standard may ultimately be neces- sary. This roadway is under the jurisdiction of INDOT. Although not, included in Hamilton County, it should be noted that a Township Road/1-465 interchange is assumed in the development of this plan. A number of factors will influence future consideration of this inter- change, and at the end of 1990 it was not yet included in the Indianapolis Thoroughfare Plan or the INDOT Highway Improvement Program. Nevertheless, from a long-term Carmel -Clay Township perspective, this in- terchange will be needed to serve western Clay Township and to relieve congestion at 1-465 interchan- ges with Michigan Road and U.S. 31. There is no urgency to implement any of the recom- mended thoroughfare plan components in western Clay Township. Improvements should be made commen- surate with needs dictated by development. Most im- portant in the near term will be the reservation and acquisition of right-of-way for the proposed parkways and improvement of two-lane roadways to minimum geometric standards. Central Clay Township (Spring Mill Road to Keystone Avenue) Central Clay Township is currently the most developed portion of the study area and includes the largest areas planned for commercial and high density development in the future. Two limited access highways (U.S. 31 and Keystone .Avenue) serve the predominant north -south regional travel needs of Hamilton County and points north. Based on the traffic forecasts developed in this 1991 Amendment, traffic demand will continue to in- crease on U.S. 31 and Keystone Avenue in a manner similar to the growth experienced during the 1980s. The rate of this growth will relate closely to market conditions. Recommendations for these routes repre- sent the most significant thoroughfare plan changes proposed in this 1991 Amendment. Total traffic volume on U.S. 31 increased by 80% (south of 116th Street) between 1981 and 1989. During this period, approximately 2.5 million square feet of com- mercial development was constructed in the corridor. Although a portion of this growth is attributable to through traffic, most of the growth relates directly to this commercial development, as indicated by the high growth rate of northbound traffic ("reverse commute" work trips) between 1981 and 1989. These movements increased by approximately 185% south of 116th Street during this period. Based on an estimate of trips generated by approved developments (neglecting new developments and addi- tional through trips), traffic on U.S. 31 will increase by another 459 (from 40,000 vehicles per day to 58.000 vehicles per day) south of 116th Street. At this level, acceptable service (Level of Service D or better) can no longer be provided by at -grade intersections. There- fore, a freeway, with grade -separated interchanges, is recommended for U.S. 31. Initially, the freeway should extend past 116th Street. The freeway might provide interchanges at 106th and 116th Streets, and overpasses (or closuref at 103rd and I I Ith Streets. In considera- tion of the potential for future development north of 116th Street, the recommended Thoroughfare Plan ex- tends the freeway to a point north of 131st Street, and widens existing U.S. 31 to six lanes north to 146th Street. Ultimately, the need for six lanes on all proposed freeway sections is indicated by traffic forecasts. Whereas traffic growth on U.S. 31 during the 1980s is attributable primarily to nearby commercial develop- ment, traffic growth on Keystone Avenue resulted mainly from residential growth in central and western Clay Township. Traffic increased on Keystone Avenue (north of 96th Street) by 20% between 1981 and 1989, from 31,000 to 37,000 vehicles per day. Directional distribution of traffic flow on Keystone Avenue indi- cates that it continues to serve commuter traffic be- tween Carmel residences and Indianapolis employment centers. Future land use scenarios suggest that this trend will continue. A_>r_view Df minimum needs from approved develop- ments indicates that Keystone Avenue should be widened to six lanes between 98th Street (where the existing six -lane section ends) and Carmel Drive. When anticipated residential growth in eastern Clay Township is considered, traffic forecasts suggest a need to extend the six -lane facility northward to 131st Street, and a need to consider future freeway construction between 1-465 and 116th Street. Keystone Avenue traf- fic growth is likely to occur gradually, as it did in the 1980s. The service area of this roadway is large, extend- ing eastward to White River, due to the "funneling" effect of the river and a lack of alternate access points to 1-465 and Indianapolis. Thus, the potential ultimate need for a freeway standard on Keystone Avenue is based on assumed build -out of residential areas in eastern Clay Township. This level of development is not likely to occur within the next 20 years. Additional studies will be needed to implement the recommended actions on either U.S. 31 or Keystone, especially where interchange construction is proposed. Since both facilities are state highways, it is assumed that INDOT will direct or participate in these studies. Major topics would include interchange locations and configurations, right-of-way needs, staging, main- tenance of traffic, and costs. Preliminary reviews indi- cate that a "tight urban diamond" design could be used at 106th and 116th Streets on U.S. 31. North of 116th Street, an interchange at Carmel Drive seems the most feasible, but alternatives exist regarding interchanges at 131st, 136th, or some combination of movements connecting with more than one cross street. All com- ponents of proposed freeway construction on U.S. 31 (and ultimately, Keystone Avenue) should be verified by more detailed studies. Other thoroughfare plan recommendations in central Clay Township provide access to the U.S. 31 freeway or serve local needs. The need for a parallel collector roadway system recommended in the 1985 Update along U.S. 31 is verified by traffic estimates developed for this 1991 Amendment. These four -lane roadways will be needed to provide local access to commercial developments in the Meridian Corridor and to collect trafficdestined for U.S. 31 interchanges. Roadwavim- provements (shown as six -lane arterials) on cross streets will be necessary between the parallel collectors to provide access to interchanges. The combination of the U.S. 31 freeway, parallel collector roadways, and interchange connectors will operate as a system, sup- porting the need for a high degree of cooperation by local and state officials in future planning activities for this corridor. Other recommended improvements in central Clay Township are more limited. reflecting the mature development of the area. Ne% roadway links are proposed to extend 126th Street from Range Line Road to Guilford Road, and to extend Guilford Road from 116th Street to I I Ith Street. The plan also proposes widening College Avenue and Range Line Road to four lanes between 116th Street and the Hamilton/Marion County line. Traffic volumes should be monitored and a need demonstrated prior to implementing these im- provements, but right-of-way should he acquired or preserved. Two east -west roadways in central Clay Township are proposed for future widening: 116th Street and 146th Street. The need to widen 116th Street is indicated by current and forecasted volumes, and is warranted for network continuity as well as for serving specific traffic demands. Widening of 146th Street is recommended across the full width of the township to provide east - west mobilitythrough that area. This isconsistent with Hamilton County plans. In this plan, parkway stand- ards are recommended for 116th Street and 146th Street, subject to socioeconomic impacts of right-of- way acquisition, as indicated by project -level environ- mental studies. Three locations within central Clay Township have been identified as requiring additional detailed geometric studies due to unusual roadway configura- tions and improvement constraints. These are Range Line Road/96th Street, 136th Street/Smokey Row Road/Rohrer Road, and U.S. 31/Keystone Avenue/146th Street. Each location is subject to development which may preclude future options for improvement. Eastern Clay Township (Keystone Avenue to White River) Most of eastern Clay Township is expected to continue its past development pattern of low to moderate density e�:d .,tYa1r3n3usc>..lraxccp:ier.: a:ong9f:*.St:c:. in the southeast comer of the township, where commer- cial development is anticipated. The results of this growth pattern will be continued gradual increases in area traffic volumes as individual subdivisions and homes are constructed. More than other areas of Clay Township, the eastern section is affected by existing barriers to travel and limitations to potential roadway development. The most significant barrier is White River, extending northeast to southwest along the eastern township boundary. Bridges currently exist at 116th Street and 146th Street, and an additional bridge is planned for 96th Street. Other barriers are 1-465 to the south and Keystone Avenue to the west. Although Allisonville Road (east of White River) provides an option for north -south travel, it is congested and difficult to ac- cess. As a result. Keystone Avenue and White River tend to "funnel" residential traffic to the 1-465/Keystone Avenue interchange. This has impacts for future Keys- tone Ave/iue traffic volumes and for local roadways throughout this part of the township. A review of build -out conditions for medium density housing (two units per acre in this analysis) in eastern Clay Township indicates the following future needs for eastern Clay Township: • Hazeldell Road - Extend between Cherry Tree Road and 116th Street and widen to four lanes as a north - south primary arterial for northeast Clay Township. This will accommodate a large service area, reduce traffic demand on River Avenue, and provide a con- sistency with Hamilton County plans. It would be the only four -lane north -south roadway traversing the entire community east of Keystone Avenue. To en- hance the character of this roadway through high quality residential areas, it is proposed as a parkway. • Gray Road - Widen to four lanes between 116th Street and 96th Street. This would serve north -south residential traffic south of 116th Street, and it would provide an alternative to Keystone Avenue through this section of the township. The need to widen this section is indicated by traffic forecasts. If Hazeldell Road is constructed as proposed north of 116th Street, further widening of Gray Road to the north should be unnecessary. given the development pat - tem of the Comprehensive Plan. • 116th Street -As in previous Carmel -Clay Township Thoroughfare Plans. early drafts of this 1991Amend- ment recommended four through lanes between Keystone Avenue and White River. Traffic forecasts based on residential build -out in Eastern Clay Township indicate a need for this capacity. While this plan was being completed. a local commit- tee reviewed the corticior- spec i fic benefits and im- pacts of widening 116th Street. The committee considered a range of material and interviewed in- dividuals knowledgeable about this corridor. They concluded that traffic benefits would he outweighed by negative social impact. and recommended three lanes rather than four. As recommended by this local committee, the 1991 Thoroughfare Plan shows 116th Street with three lanes between Keystone Avenue and White River. A parkway character is intended although opportunities will be limited by potential impact on adjoining propoerties. • 146th Street - A four -lane parkway is recommended. consistent with identified need and recommenda- tions for the rest of Clay Township. 126th Street - Traffic forecasts indicate a need for four lanes from Hazelidel Road to Keystone Avenue to serve surrounding residential development. As with 116th Street, traffic concentrations result from the funneling effect of White River and the lack of east -west parallel roadways between Gray Road and Keystone Avenue. • 106th Street - Traffic forecasts warrant four lanes from Gray Road to Keystone Avenue for the same general reasons as for I l6thand 126th Streets. • %th Street - Six lanes east of Keystone Avenue are indicated by traffic forecasts which consider planned commercial development along this roadway. With the new bridge over White River. this roadway will also serve as a "back door" access to Castleton Shop- ping Center, an intensive commercial retail area lo- cated southeast of Clay Township in Marton County. The timetable for roadway improvements in eastern Clay Township will be dictated by the growth rate of residential development. Right-of-way should be reserved, in accordance with recommended geometric standards, for construction of these roadways when the need is indicated by increasing traffic volumes. Transportation Demand Management (TDM) In many high-growth suburban areas, transportation demand management (TDM) has emerged as an effec- tive tool in reducing traffic congestion. By its nature, a thoroughfare plan identifies anticipated capital im- provements for specific roadways or corridors. These actions serve to increase the capacity or "supply" of the system. An alternate (or supplemental) approach is to reduce vehicle demand during peak periods of travel. The goal of TDM actions is to influence the way people travel to work, either by mode, frequency, or route. Following are typical TDM strategies which may be effective in Carmel -Clay Township: • Carpools. Van pools (ridesharing programs) • Staggered or flexible work hours • Improved transit service • Non -vehicular modes (bicycle, walk) • Employee services (day care, bank machines, postal facilities, and retail services in close proximity to reduce travel) While none of the TDM actions listed are recom- mended in lieu of physical improvements of the thoroughfare plan. effective implementation could defer or potentially eliminate future capital invest- ments. The concentration of commercial office facilities within the Meridian Corridor provides a uni- que opportunity for these strategies.