HomeMy WebLinkAboutUS-31 Subarea PlanJULY 2025
CITY OF CARMEL, INDIANA
CARMEL US-31 SUBAREA PLAN
JULY 2025
CARMEL US-31 SUBAREA PLAN 2
Contents Planning Summary1
Growth Strategy2
Design & Policy Guidance3
Subarea Plan4
Appendix5
JULY 2025
CARMEL US-31 SUBAREA PLAN 3
The US-31 Corridor
As part of the implementation of the Carmel Comprehensive Plan adopted in
December 2022, the City of Carmel engaged Yard & Company to conduct a US-31
Subarea Plan. This work will primarily focus on recommendations for policy and the
MC zoning district and a common public realm framework that, together, will enable
and guide the type of development that community members and City leaders want
to see along this corridor. The final US-31 Subarea Plan will be incorporated as an
amendment to the Carmel Comprehensive Plan.
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Note: For visual convenience, the orientation of
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Planning
Summary
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CARMEL US-31 SUBAREA PLAN 5Planning Summary | Growth Strategy | Design & Policy Guidance | Subarea Plan | Appendix
Carmel Comprehensive Plan (2022)
The update of the Comprehensive Plan for the City of Carmel focuses
on refining growth goals for the next 10 years and highlights the
significant changes to the physical environment that have made
Carmel attractive to new employers, employees, visitors, and residents.
The Carmel Comprehensive Plan 2022 has 9 objectives, including
managing community form, enhancing economic vitality, fostering a
city of neighborhoods, reinforcing adaptability, cultivating community
character, lightening Carmel’s environmental footprint, supporting
healthful living, and improving mobility options and functionality.
US-31 Corridor Future Development Plan (2020)
The US 31 Corridor Future Development Plan outlines a vision for US-31,
focusing on creating a vibrant, walkable, and mixed-use environment
to support transit and office trends. It emphasizes the need for
pedestrian-friendly spaces, mixed-use density, environmental health,
shared parking, and connected places.
City of Carmel Positioning Strategy (2023)
The Positioning Strategy compares Carmel to regional competitors
and provides actionable recommendations for adapting to national
and regional economic trends, including shifts to hybrid work and
changing demographics. The Strategy highlights Carmel’s Rangeline
corridor as a successful, walkable, mixed-use area that has seen
significant growth and strong demand, and suggests that similar
areas could be developed along US-31. It also emphasizes the need
to review Carmel’s zoning and regulatory policies to support the
development of mixed-use spaces.
Carmel Mayor’s Housing Task Force Findings and
Recommendations Report (2024)
In September 2024, the Mayor’s Housing Task Force published a
report that describes five key challenges to providing housing. Several
recommendations relevant to the US-31 corridor were provided,
including: Prioritize infill and redevelopment of underutilized
commercial and parking areas; Adopt a development strategy for new
apartment construction; Actively seek new collaboration opportunities;
Acquire more green space; Assess zoning; Publish relevant maps and
data, and more.
City of Carmel Transit Study (2020)
The planned transit in Carmel would serve the US-31 corridor and
much of the CBD. The Carmel Transit Study, prepared by Nelson/
Nygaard, recommended two transit service options: 1) fixed route bus
with para-transit service, and 2) on-demand micro transit service with
flexible boundaries subject to further study. The long-term transit plan
also includes the option to extend the Red Line regional bus rapid
transit route from Indianapolis.
Planning Summary1
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CARMEL US-31 SUBAREA PLAN 6Planning Summary | Growth Strategy | Design & Policy Guidance | Subarea Plan | Appendix
City of Carmel Transit Implementation Strategy
(2025)
Building on the 2020 report, TransPro conducted an
update recommending on-demand transit service
city-wide as a short-term initiative. A fixed route that
connects the commercial area along Old Meridian
near Main Street with Merchant’s Square Mall is
recommended in the mid-term. Over the long-term,
fixed routes along Pennsylvania, City Center, and/or
Rangeline/Westfield may be possible.
Carmel TIF districts: Carmel has 69 TIFs, with about
half located within the US-31 Subarea Boundary.
Planned developments along US-31
The Carmel US-31 Corridor Plan includes several
planned developments, such as Clay Terrace
Phase 1, Hamilton Crossing, and the Meridian Mark
Redevelopment. These developments are likely
to include a mix of office, retail, residential, and
recreational spaces, with varying building sizes and
parking capacities.
Planning Summary (continued)
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Growth
Strategy
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CARMEL US-31 SUBAREA PLAN 8Planning Summary | Growth Strategy | Design & Policy Guidance | Subarea Plan | Appendix
Growth Strategy
The definition of a modern, competitive employment corridor has shifted
to now include a mix of hospitality, tourism, residential, and dynamic public
space experiences that are welcoming to residents, guests, and employees
alike must now be the standard to attract and maintain businesses and
workforce talent. Expansive grayfield parking lots and inaccessible or unusable
open space should be rethought of as opportunities for more productive
assets for the community.
Based on where the US-31 corridor is today and needs to go tomorrow, this
plan makes recommendations for intentional growth and high-quality
development based on these six strategies:
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Play Both Offense
and Defense
Promote the
New Narrative
Focus On Early Needs
and Opportunities
Infuse Flexibility to Support
Active Uses and Green Spaces
Coordinate
Efforts
Plan for
Connectivity
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CARMEL US-31 SUBAREA PLAN 9Planning Summary | Growth Strategy | Design & Policy Guidance | Subarea Plan | Appendix
The transition from an isolated, pavement-heavy
office environment surrounding US-31 into a better
connected, more beautiful, and desirable place to
spend time is a long-term endeavor. A majority
of property ownership involves investors who are
generally risk-averse and not interested in leading
change, but will respond accordingly once evidence of
successful changes are demonstrated. There are a few
sites within the district where intentional, mixed-use
redevelopment could help establish the new standard.
City leaders should promote the following near-term
opportunities.
At the north end of the corridor, the Clay Terrace
commercial district is set to introduce new office,
residential, hospitality, and recreational uses to an
otherwise dated life-style shopping center. The
expected outcome of this development is a new
neighborhood offering that continues to provide
regional amenities while significantly boosting daily
users and opportunities for small businesses.
On the southern side of Main Street, between
Illinois Street and US-31 are a group of properties
along Hamilton Crossing Boulevard with strong
redevelopment opportunity. A new development
concept could leverage the existing low occupancy,
prominent location, and opportunity to construct
signature buildings that help establish a gateway
at this key node. Given the grade relationship to the
highway, the site is largely invisible to passerby which
presents an opportunity for US-31 fronting structures
to be taller than currently permitted by right and
still maintain the Carmel feel through conformity
with other quality-assuring standards. The geometry
of the highway allows for a terminated vista on this
site. Hospitality-oriented gathering spaces could be
incorporated to accommodate both corporate business
and community needs while improving the experience
for existing properties fronting Illinois Street through
streetscape and green space enhancements.
Another key redevelopment opportunity is south of
106th Street between Pennsylvania and US-31 (the
existing Meridian Plaza). These office properties are
under-performing and given their outdated format, are
ripe for infill redevelopment that incorporates a mix of
uses and amenities in place of surface parking.
Also on the horizon is the redevelopment of
approximately 78-acres across six sites that previously
encompassed the CNO Financial Group headquarter
operations. While the campus is outside of the Meridian
Corridor, its proximity, size, and opportunity to help
connect the corridor to Carmel’s core warrants proactive
attention and coordinated planning.
Focus On Early Needs and Opportunities
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CARMEL US-31 SUBAREA PLAN 10Planning Summary | Growth Strategy | Design & Policy Guidance | Subarea Plan | Appendix
While large projects continue operating as they are in
the near-term, small, complementary efforts can be
leveraged to test the market for change. Underutilized
open spaces and paved areas on properties with
existing users can be opportunities to test activation-
focused concepts. This means working with property
owners to explore the feasibility of small scale outlot
development. Projects could include creation of a food
truck park, temporary retail villages with comfortable
outdoor seating and green space amenities,
incorporating more trees and vegetation where feasible,
and other tactics that increase fuller use of sites.
Carrying out these quick projects will produce valuable
insights that may inform larger redevelopment
strategies, including an understanding of how such
changes impact the daily lives of neighbors. However,
there are existing regulations that may get in the way,
such as minimum parking requirements and use
restrictions. Initial suggestions for providing controlled
flexibility, including specific modifications to consider
for the Meridian Corridor zoning standards are provided
in this plan and should be supplemented by additional
conversations between City leaders, staff, and corridor
property owners.
Infuse Flexibility to Support Active Uses and Green Spaces
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CARMEL US-31 SUBAREA PLAN 11Planning Summary | Growth Strategy | Design & Policy Guidance | Subarea Plan | Appendix
Through the decades-long redevelopment of Carmel’s
central core, City leaders and staff have fine tuned the
processes and tools for encouraging development that
contributes to a long-term vision and Carmel identity,
while ensuring development that doesn’t meet that
standard is not built. Development expectations were
recently updated in the 2022 Comprehensive Plan
and are carried out daily by reference to the Unified
Development Ordinance.
For the US-31 corridor, the C Districts (C1 and C2) and
Meridian Corridor District (MC) provide the majority of
use regulations and development standards. The mixed-
use nature of the C Districts as well as their location
within or adjacent to the core of Carmel, provide the
City with the necessary leveraging power to influence
the projects as needed to ensure there are sufficient
public benefits. Redevelopment is time intensive and
expensive, and typically requires public investment. Some
of Carmel’s best projects are because of the C-District
redevelopment partnership process. By comparison, the
MC District sets a high bar for development and has been
effective in producing projects that conform to the vision
and character of the corridor. This is where there is some
opportunity to realign standards in the UDO that match
market and community interests for this area. These MC
recommendations are detailed in the Design Guidance
section.
Play Both Offense and Defense
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CARMEL US-31 SUBAREA PLAN 12Planning Summary | Growth Strategy | Design & Policy Guidance | Subarea Plan | Appendix
A critical element of a dynamic and resilient district
where people are making full use of properties
throughout most of the day is its ability to provide
convenient, comfortable, and safe ways to get in, out,
and through the place. As demonstrated in Midtown,
incorporating multi-use pathways that are dotted with
interesting things to see and do are key to connecting
primary destinations. Over time, a fuller network
can be built throughout the areas surrounding the
corridor, incorporating amenities that benefit existing
community members and attract future users.
Additionally, new streets can help fill gaps where
frontage roads are disconnected and where
long stretches can be broken up with mid-block
connections. New connections can also distribute hubs
of activity currently isolated in the core and along the
Monon out to destinations east and west. Centrally
located and activated east-west corridors along 106th
Street and through the redeveloped CNO campus,
both with crossings over Meridian Corridor, should
be priorities. Advancing the coordinated planning for
future transit options is also key to boosting options for
getting around Carmel.
Plan for Connectivity
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CARMEL US-31 SUBAREA PLAN 13Planning Summary | Growth Strategy | Design & Policy Guidance | Subarea Plan | Appendix
The US-31 corridor has recently landed some new, large
occupants, including Republic Airways, as well as a
new supermarket. There is great opportunity to build
on these wins, develop a succinct pitch of what more
could occur here, and promote that to a national and
global audience of potential development partners who
are likely to value and align with the Carmel brand and
sense of place. Leaning on the Carmel identity while
being able to promote a clear vision and amenable
regulatory process will go a long way in attracting a
wider level of expertise necessary to create the highly-
amenitized mixed-use district that is possible.
Promote the New Narrative
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CARMEL US-31 SUBAREA PLAN 14Planning Summary | Growth Strategy | Design & Policy Guidance | Subarea Plan | Appendix
Proactive coordination will be key to ensuring everyone
is working in the same direction and continuing to have
a positive experience in the corridor. Similar to how a
Chamber of Commerce functions, an organizing forum
specific to US-31 adjacent property owners and users
would help galvanize efforts and facilitate information
sharing. Regular check-ins could bring to light new
opportunities for development, help resolve emerging
issues, and make near-term improvements easier
to pursue. Participation in these periodic meetings
would also help keep the City engaged to support and
collaborate in this area.
Coordinate Efforts
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CARMEL US-31 SUBAREA PLAN 15Planning Summary | Growth Strategy | Design & Policy Guidance | Subarea Plan | Appendix
Design
& Policy
Guidance
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CARMEL US-31 SUBAREA PLAN 16Planning Summary | Growth Strategy | Design & Policy Guidance | Subarea Plan | Appendix
Recommendations
»Maintain the transition of scale and massing of
structures between US-31 and Illinois Street to
minimize impact to residential development along
the western edge.
»Require high quality, human-scaled urban
architecture, site & trail design (including welcoming
ground-floor details, walkable blocks, landscaping).
»Incorporate pedestrian infrastructure (wide,
connected sidewalks, street lighting, etc.).
»Provide amenities attractive and welcoming to
visitors, employees, and residents (ex: attractive
landscaping/green space, seating, retail, art, etc.).
»Minimize visual and environmental impacts of
parking lots and structures.
»Minimize use of high-wall signage and lighting
facing residential areas.
»Maximize height at ends of vistas such as the
curvature of US-31 and terminating street corridors.
»Focus design review on creating a safe, active, and
vibrant frontage along public spaces and streets.
»Strive to provide seamless connections between
properties.
Design Guidance
Example development concept incorporating recommended design guidance
Terminating vistas contribute to a sense
of place by serving as a landmark or
opportunity to highlight key buildings
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CARMEL US-31 SUBAREA PLAN 17Planning Summary | Growth Strategy | Design & Policy Guidance | Subarea Plan | Appendix
Recommendations
Feature trail development:
»Abide by the existing Enhanced Multi-Use Path
standards
»Use surface treatments (painted concrete or pavers)
to delineate space for pedestrians separate from
cyclists and other faster moving users
»Incorporate signage and wayfinding that aligns with
the City and/or district identity
»Provide lighting, landscaping, seating, waste
receptacles, and bicycle parking along the path
»Incorporate public art and other means of visual
interest and activity
»Incorporate space that accommodates trail-oriented
programming and events, such as staging areas for
pop-up vendors, performances, and gatherings
Planned/Proposed trail development:
»Abide by the existing Multi-Use Path minimum
standards
»Incorporate signage, lighting and other essential
elements, in addition to amenities such as seating,
landscaping, and bicycle parking as appropriate
Design Guidance
Feature trail exampleFeature trail example
Multi-Use Path Standard (min.)Enhanced Multi-Use Path Standard (min.)
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CARMEL US-31 SUBAREA PLAN 18Planning Summary | Growth Strategy | Design & Policy Guidance | Subarea Plan | Appendix
Recommendations
»Incorporate the Downtown West development
characteristics listed in the 2022 Comprehensive Plan.
»Remove restrictions that dictate which floor level a
permitted use can be on.
»Explore expansion of special uses to include small-
batch and artisan manufacturing and high-tech/
biotech research and production.
»Specify setback standards for parcels that have two or
more street or roadway frontages to ensure all follow
front setback regulations.
»Allow the market to determine parking needs:
• Reduce or eliminate parking minimums, while
continuing to mandate accessible spaces.
• If minimums are desired, re-evaluate the MC
parking ratios to ensure they align with current
market trends and encourage shared parking.
• Expand the distance of qualifying off-street parking
(on-site) from within 300 feet to 600 (2-minute
walk) or 1,200 feet (4-minute walk) and remove
requirement to be immediately adjacent to the
primary lot.
• Expand the off-site parking distance from 800 feet
to 1,200 feet away from the subject building.
Policy Guidance
»Incorporate publicly accessible plazas, courtyards,
gardens, trail heads, and gathering spaces near
entrances away from highways.
»Incorporate additional architectural elements
in public frontages that support a comfortable
pedestrian and trail environment, such as seating
and landscaping.
»Consider increasing the 8-story height maximum at
key intersections where a structure fronts US-31 and
an arterial street.
»Remove waiver required for use of permeable
materials for surface parking lots.
»Describe preferred proportions and heights for
glazing and other facade features to promote
human-scale design.
»Ensure ground-floor glazing is transparent and
uncluttered.
»Reconsider requirements for all structures to have
upper floors designed in similar format to multi-story
office buildings in favor of proportions and features,
such as operable windows and shallow distances
from windows, which accommodate a broader
variety of uses.
Examples of activated frontages that provide amenities
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CARMEL US-31 SUBAREA PLAN 19Planning Summary | Growth Strategy | Design & Policy Guidance | Subarea Plan | Appendix
Subarea
Plan
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CARMEL US-31 SUBAREA PLAN 20Planning Summary | Growth Strategy | Design & Policy Guidance | Subarea Plan | Appendix
Existing US-31
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CARMEL US-31 SUBAREA PLAN 21Planning Summary | Growth Strategy | Design & Policy Guidance | Subarea Plan | Appendix
US-31 Subarea Plan
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US-31 Subarea Planned Bus Route Possible Bus Route Priority Development Site Feature Trail Planned/Proposed Trail
Gathering SpaceMain & Illinois
Clay Terrace
Phase 1
Meridian Plaza116th & Illinois
Monon TrailMonon Trail
Monon TrailMonon Trail
Monon TrailMonon Trail
Note: Existing and planned multi-use paths are not shown for clarity purposes. Please view that full network online at carmelcomprehensiveplan.com.
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Merchants’ Merchants’ SquareSquare
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CARMEL US-31 SUBAREA PLAN 22Planning Summary | Growth Strategy | Design & Policy Guidance | Subarea Plan | Appendix
Appendix
5
Click here to review these documents:
0.1 US 31 Corridor Future Development Plan
0.2 US 31 Corridor Future Development
Plan: Appendix
0.3 City of Carmel Positioning Strategy
0.4 North Rangeline Road and US-31 Plan
0.5 116th and Meridian District Master Plan
0.6 Hamilton Crossing Master Plan
0.7 Meridian Mark Redevelopment Proposal
0.8 Hotel and Retail Infill at 116th and Penn
0.9 City of Carmel Transit Study
10 City of Carmel Transit Implementation
Strategy
11 US 31 Subarea Stakeholder Input
Summary Report
12 US 31 Stakeholder Webinar
13 Carmel Mayor’s Housing Task Force
Findings and Recommendations Report
by
CARMELUS-31