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HomeMy WebLinkAbout1997-Economic Development Plan/Hazel Delll Pkwy Carmel Indiana Hamilton County 1 1 1 Economic Development Plan 1 Hogellc all [3g Cy 1 I CCC© fl© Dc fl©o on z b ®CZ p 1 -1 May 1, 1997 1 Wofmoilp S erTM aui ©o Michael R. Shaver, President 4742 Bluffwood North Drive Indianapolis, IN 46228 1 (voice) 317/299 -9529 (fax) 317/329 -9885 (e -mail) wabsci @indy.net :1 i 1 1 1 1 1 1 1 1 1 1 1 1 1 1 Table of Contents i THE PURPOSE OF AN ECONOMIC DEVELOPMENT PLAN 1 Identification of the Planning Area 3 Description of the Proposed Project 4 i Relationship with Previous Planning Efforts 4 Comprehensive Planning Sets the Stage: 4 I Systemic Constraints: 5 NORTH -SOUTH CORRIDORS: 5 East -West Corridors: 6 Interconnecting Destinations within Carmel 7 THE 1961 COMPREHENSIVE PLAN: 7 THE 1970 1971 PLANs: 8 I THE 1985 COMPREHENSIVE PLAN UPDATE 8 THE 1991 UPDATE' 9 "2020 VISION "/THE 1997 UPDATE: 9 1 SUMMARY: 10 CREATION OF AN ECONOMIC DEVELOPMENT AREA 12 I THE PROCESS: 12 IDIOSYNCRACIES OF THE HAZELDELL PARKWAY PROJECT: 12 I Findings of Fact: 13 Finding #1: "...meets other purposes of economic development." 14 Finding #2: "...the plan for economic development cannot be 1 achieved...because of lack of public improvements...." 15 Finding #3: 'The public health and welfare will be benefited..." 16 Finding #5: 'The plan...conforms to other development plans..." 18 I Conclusions 19 1 Recommendations 20 Estimated Project Cost 20 Boundary Decriptions of Economic Development Areas 21 Plum Creek/Hazeldell Parkway Economic Development Area 21 96th Street/Hazeldell Parkway Economic Development Area: 21 1 Hazeldell Corridor Economic Development Plan 1 1 1 Z. z a �1aT` L s I W W II a AVAMOR 7 TR A E 4+'` a I f t1 .7 Oft-; ATN4 4oR_ 1F[xTFk 5 E to o A J RIVER aeR I t AYI MIMIC A EEst I l^y�j� n[nE 1. 1 p D ER Jr a non i 4 J a -.'4 e trRUt) a r9 y r a l W >3 r OR IlT00E DR W 'R f' V i AVIAN W I EAR .n• I� J. ;in, R A E Ca 1 �1�' 'R ry RF ,...!V YN.1 S. 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A I ATc YI O N s t D YR f[ R S t, II IEES R iG [N, E d ew 1 1 fir+ E+ a rr i Map No. 1 r Hazeldell Parkway 1 tAW 1 .D .o. l l,R I 96th Street /Hazeldell Parkway f Economic Development Areas Economic Development Area am nn E,' R roc[R g nNln� g Tabem l e twit 1 I I A Christi e Q S 96th i ST j HAMILTION t Cat®ar Ps4 1 MARION CO 1 1 1 THE PURPOSE OF AN ECONOMIC DEVELOPMENT PLAN Public opinion can An economic development plan should not be a free standing document, ebb and flow on a designed and undertaken in isolation from the previous policies It should, instead, be philosophically and factually linked to the previous random basis, and current planning efforts of the community. An economic .1 project by project, development plan should establish the historical perspective which and opposition enables community leaders to consciously connect proposed economic often requires only development activities to the economic development goals and policies i the scantiest which the community has previously endorsed. factual basis for I their challenges. The strongest economic development plans, therefore, are based on public policy which was initiated long before any current project was conceived. Economic development projects which are proposed in areas I which were designated for particular land uses should be the easiest to defend. In cases where areas are designated for industrial development long before any specific project was proposed, the community's I leadership should logically feel more comfortable that they have properly planned the development patterns for the community. I Public opinion can ebb and flow on a random basis, project by project, and opposition often requires only the scantiest factual basis for their challenges. In the face of such opposition, the Plan Commission 1 through the Economic Development Plan, must examine the body of previous policy and determine whether the proposed project fits into the development parameters which have been previously established. It 1 therefore becomes the job of the economic development planner to objectively review the body of previous policy and determine the extent I to which current projects comply with the prior development parameters. This Carmel Economic Development Plan must be undertaken with I some care. First, the City of Carmel is probably one of the best planned communities in Indiana. The Plan Commission has been careful in crafting its plans and authoritative in implementing its I recommendations. The community holds its developers to high standards, and in order to maintain those standards, the developers must be assured that they are not bearing an unfair burden. Consequently, the l community must hold itself to the same high standards it sets for the developers. Carmel has done so with notable success. I Second, Carmel has grown so fast for so long that, without careful planning and strict adherence to those plans, conditions of the city would "devolve" into chaos. Most communities cannot grow from a 1 Hazeldell Corridor Economic Development Plan 1 1 1 Carmel is a city of sleepy little town to a city of over 31,000 and still continue to grow. 8! success its people The infrastructure demands of that type of growth would paralyze most communities. As evidence of this, consider the plight of Zionsville, tend to be successful another growing community near Carmel whose growth so confused the success in modern town's leadership that they tried to slam the door shut and pursued a times requires "no growth" policy which stymied the town for years. Until new creativity in leadership emerged in Zionsville, the town was crippled by its own problem solving success. creativity is, itself, a process of inherent Third, the rate of growth in Carmel means that the city's leadership must be visionary. Infrastructure problems must be foreseen many years conflict. in advance in order to accommodate growth. Thoroughfares must be widened before the traffic is so congested that economic activity is choked. As such, strategies must not only remedy existing problems but must be integrated to solve multiple problems in a harmonious manner. Without visionary leadership, this type of "synoptic" planning is virtually impossible because the margin for success is often negotiated away in dealing with the intransigence of popular politics. Fourth, the projects must be well rooted in public consensus. There will always be honest disagreements among bright people. Carmel is a city of success its people tend to be successful success in modern times requires creativity in problem solving creativity is, itself, a process of inherent conflict. Consequently, for projects to be successful, they must be launched from a platform of consensus where people have already had the opportunity to discuss and debate. If that basic consensus is present, the final discussion involves only the negotiation of details. 1 The Plan must meet the requirements of applicable Indiana statutes. If the planning process can provide economic stimulus to existing and new businesses and industries, given those businesses a competitive advantage in the marketplace, the Plan should address those opportunities and make the analysis necessary to assure that benefits 1 accrue to the community. Public opposition is essentially a random phenomenon. Opinions and P tempers often run hot with emotion. The Economic Development Plan 111 provides the rational, analytical process by which the community can measure whether a proposed project is consistent with the consensus built thorough the Comprehensive Planning process. It is not appropriate for a community to develop planning, land use and zoning rt recommendations for an area, then arbitrarily reverse itself. 2 Hazeldell Parkway Economic Development Areas 11. 1 r t- 1 1 The initial project An Development Plan, therefore, is an examination of will include only previous economic development policy in light of new proposals. It two lanes with a examines proposed land uses, previous planning for the area, and the broad median, but qualitative context of the development as a means of either justifying or repudiating any current project proposal. In so doing, the Plan re- it would be establishes the public policy basis of economic development for the 1 possible to community, objectively tests the project against that basis, and makes economically recommendations of the appropriate level of support for the project. expand the The chapters and pages set forth below attempt to achieve this goal. 1 roadway if demand proves the Because Carmel has enjoyed such success in implementing its plans, this need at a later Economic Development Plan faces an unusual challenge it must be far ahead of the usual economic development curve. For Carmel, date. growth does not need to be stimulated, per se. It has been happening I already. But Carmel's standards are higher. The City Administration and Plan Commission have rejected more "growth" than most communities ever see. It is not enough to merely "grow." For I Carmel, the key is to generate "quality" growth...the kind of growth that continually re- identifies Carmel as one of the most successful and beautiful communities in Indiana. To accomplish this task will require I forward thinking that looks decades ahead instead of years, while still remaining firmly rooted in the public consensus developed through the Comprehensive Planning process. 1 Identification of the Planning Area I The Planning Area (not the Economic Development Area) is designed to consider the proposed project in the context of its aggregate impact. As such, the planning area for any report such as this should be larger than I the immediate area of the project and should consider issues related to the overall area, as well as to the community as a whole. 1 The Planning Area for this project was set to include the US431 corridor on the west, White River on the east, the Marion/Hamilton County line on the south, and 146th Street on the north. The 96th 1 Street and 146th Street boundaries were selected because they represent the jurisdictional limits of the City of Carmel. (Westfield lies to the I north and the City of Indianapolis lies to the south.) This area is somewhat developed with upscale housing, including golf courses and significant amounts of green space. Older development in the area includes the linear development of homes along the White I River, as well as the 96th Street commercial corridor which includes 1 Hazeldell Corridor Economic Development Plan 3 1 il 1 By keeping the significant retail areas and as office park developments. It should be 1 Hazeldell corridor noted that, as a regional economic development issue, the 96th Street corridor is an extremely important commercial area although it is separate from the divided in governmental jurisdiction between Indianapolis and Carmel. Gray Road corridor, Therefore, the statutory issues of this development fly somewhat in the future traffic face of reality in that each city can only claim benefit to 50% of the capacity is preserved new economic development along the corridor, even though the by dispersing traffic development, itself is regional in its impact. This report will attempt to into two corridors, recognize and accommodate this issue. as opposed to Description of the Proposed Project funnelling them into one. The Hazeldell Parkway project is proposed to be a parkway design linking 146th Street on the far north side of Carmel with 96th Street at the Hamilton/Marion County line. The proposal for the roadway includes grass medians, sidewalks, and bike paths, as well as provision for up to four lanes of travel, with turning lanes and traffic control. The initial project will include only two lanes with a broad median, but 1 it would be possible to economically expand the roadway if demand proves the need at a later date. The proposed project has been anticipated by the community for many years. Based on review of previous planning documents, the Hazeldell Parkway was first formally proposed in the 1985 Comprehensive Plan 1 Update. The 1985 Update proposed to link Hazeldell to River Road at 116th Street. Over the last 12 years, the preliminary design details have changed several times, including several possible alignments. The current project proposes to create a continuous 2 -lane traffic corridor from 146th Street to 96th Street, with much of the roadway being new construction. The new roadway south of 106th Street will roughly follow the alignment of old River Road (previously abandoned) to a new connection with 96th Street, immediately west of the new bridge over White River and east of the active mining operation at American Aggregates. By keeping the Hazeldell corridor separate from the Gray Road corridor, future traffic capacity is preserved by dispersing traffic into two corridors, as opposed to funnelling them into one. Relationship with Previous Planning Efforts 1 COMPREHENSIVE PLANNING SETS THE STAGE: It is clear that the City of Carmel has invested significantly in the comprehensive planning process. The City has been meticulous in planning for its developmental future, and they have invested the human capital in 4 Hazeldell Parkway Economic Development Areas 1 1 11 11 While most protecting that future by setting high standards and enforcing them. While most communities invest in comprehensive planning every 10 communities invest years or more (many wait far longer), Carmel has updated its 111 in comprehensive Comprehensive Plan in 1970, 1971, 1985, 1991 and again in 1997. planning every 10 I years or more While these comprehensive plans covered many, many topics, it is clear i (many wait far from reviewing the documents that traffic congestion is becoming a longer), Carmel matter of more and more intense concern. Since 1985, Carmel has I expended tens of millions of dollars in road improvements, both from has updated its the public sector and from private developers. New road corridors have Comprehensive been built, fragmented corridors have been completed, and existing Plan in 1970, corridors have been improved, yet traffic congestion continues to haunt 0 1971, 1985, 1991 the City. The Comprehensive Plans have attempted to look far into the and again in 1997. future and determine what must be done to allow the transportation network to function at acceptable levels. SYSTEMIC CONSTRAINTS: No matter how wide the roads are in the 1 Carmel area, however, the entire Carmel system is constrained by certain limitations. First, the Carmel system must connect efficiently to the main economic center in Indianapolis. Those connections are I severely limited by the presence of the I-465 Corridor which cuts across the full length of Carmel's south side. The only crossings of the I -465 corridor are located at Ditch Road, Spring Mill Road, Meridian I (US31), Westfield Boulevard (Range Line Road), College Avenue, Keystone Avenue (US431), and River Road. The City of Indianapolis aggravated the problem by allowing a new commercial development to 1 block the River Road corridor at 86th Street, thus disconnecting that corridor as a thoroughfare into the economic center. 1 NORTH -SOUTH CORRIDORS: Of these limited crossings, only US31 and US431 function as true highways. Each has four or more lanes of traffic capacity, yet each has severe congestion problems, despite careful 1 traffic planning and traffic control management. These two U.S. highways have been the focal point of transportation planning for the I community for 40 years. Yet the 1991 Comprehensive Plan tells a foreboding tale. It effectively says that US31 cannot continue to function at even minimal levels of efficiency unless it is converted into a freeway with extremely limited access. To do so would require parallel corridors with at least four lanes of capacity each to remove the local traffic from the freeway. The cost of such a project is expensive today, and getting more expensive as growth continues to consume available land. 1 Hazeldell Corridor Economic Development Plan 5 1 1 Range Line Road Spring Mill and Ditch Road will always be constrained by the nature of and College Avenue the development along those corridors. The large estates in the Clay Township area bordering these corridors preserve a low density suffer from similar development that counteracts high capacity traffic corridors. To put it problems. No matter simply, the traffic demand just isn't as high in these locations. To make how much their it more difficult, both of these corridors are further constrained when capacity is increased they cross into Marion County. in the Carmel area, they are two lane Range Line Road and College Avenue suffer from similar problems. roads on the Marion No matter how much their capacity is increased in the Carmel area, they 11 are two lane roads on the Marion County side of the line. Although County side of the College Avenue connects all the way to downtown Indianapolis, Marion line. County treats the corridor as a secondary corridor and has no real plans for increasing its capacity. Similarly, Westfield Boulevard is routed through some very sensitive areas and will probably never be capable of much more traffic than it now carries. The process of elimination shows that the north -south traffic in the Carmel area has only two alternative routes: US31 or US431. The Comprehensive Plan clearly says that US31 will become dysfunctional unless it is converted into a freeway. In both cases, the limitation on crossings of the I -465 corridor force traffic onto one of these major thoroughfares in travelling between economic centers, making their function crucial to the future transportation network of the Carmel area. EAST -WEST CORRIDORS: A similar problem exists with east -west corridors. At the present time, only 116th Street and 146th Street function as complete east -west corridors, capable of carrying traffic beyond the limits of development in the Carmel metropolitan area. A third corridor at 96th Street is currently under construction, including a new river crossing. It should be noted that 96th Street forms the boundary between Marion County and Hamilton County, and as such, it is only 50% beneficial to the Carmel area. 1 All of these corridors have limitations, but it is important to note that east -west travel is not as heavily demanded as north -south travel in 1 Carmel. Even while there are only two complete east -west corridors, there are numerous smaller local streets which can disperse traffic loads. Unfortunately, these dispersed loads are often directed through residential neighborhoods which is inefficient and unsafe. In addition, this dispersion of east -west traffic is often collected and funnelled into the major north -south corridors mentioned above. There 1 6 Hazeldell Parkway Economic Development Areas 1 1 11 11 The 1985 and 1991 is little more that can be done to link Indianapolis and Carmel. However, Carmel can reduce the demand for inter -city traffic by Plans both developing more traffic destinations which would preclude the need for suggested a residents to leave Carmel and go to other cities. In order to achieve that parkway corridor goal, Carmel's thoroughfare system will have to function more 1 connecting efficiently at connecting its economic development centers, making it 1 Hazeldell Road easier for a resident near 146th Street to buy things from a business on (near 146th Street) the 96th Street corridor. with 96th Street INTERCONNECTING DESTINATIONS WITHIN CARMEL: Therefore, one of (west of the river). the keys to the successful future development of Carmel is to complete D a transportation network which successfully interconnects the traffic destination areas within the City. These destination areas are located along the US31 and US431 corridors, the technology park between I Carmel Drive and 126th Street, the Old Town area of Carmel, and the 96th Street area along the county line. 1 The Comprehensive Plans since 1985 recognized this need and recommended several projects to support this end. The 1985 and 1991 Plans both suggested a parkway corridor connecting Hazeldell Road (near 146th Street) with 96th Street (west of the river). In addition, both plans also recommended completion of a four lane corridor along Pennsylvania Street which would enable local traffic to travel between I destinations along the US31 corridor without co- mingling with: regional traffic on US31. In addition, the Comprehensive Plans dating back several decades have acknowledged the need to complete the 126th 1 Street corridor, even before Carmel Drive was conceived. By developing an internal transportation network which interconnects 1 the traffic destinations within the City of Carmel, the traffic intensity for inter -city corridors will be moderated. US31 will always be one of the major corridors in Carmel, but if a Carmel resident can find what they 1 want (whether it be a job or a loaf of bread) without using the inter -city corridor, the thoroughfare system will provide a direct benefit to the health and safety of the community. I THE 1961 COMPREHENSIVE PLAN: The 1961 Comprehensive Plan represents a good place to begin the analysis of previous planning for the City of Carmel. In 1961, the community had no idea of the growth that was in store for it. It saw itself as a growing community, and one with significant growth potential, but there was no evident inkling of the i' level of interest which developers and investors would take in the community over the next 36 years. In the 1961 Plan, the Planning Area E 1 Hazeldell Corridor Economic Development Plan 1 1 1 The (1970) Plan did not even reach as far east as White River or Hazeldell Road, and formally yet, as this economic development plan was developed, residential d evelopment was consuming the undeveloped land in the Hazeldell recommends that Road area at a significant rate. As such, the 1961 Plan represents the the Hazeldell beginning of the City becoming aware of its potential. corridor be completed from THE 1970 1971 PLANS: The 1970 and 1971 Comprehensive Plans 146th Street south were closely related. The documents provided by the City show no to 116th Street clear indication of their formal relationship, but it would appear that the where it would 1971 document actually represents the approved form of the draft document presented in 1970. For the most part, the conclusions and connect to the recommendations are the same for both documents. existing section of N' River Road. These plans represent the first documented proof of the community beginning the development of a consensus regarding the future importance of the Hazeldell corridor. The Plan formally recommends that the Hazeldell corridor be completed from 146th Street south to 116th Street where it would connect to the existing section of River Road. This would complete the corridor from 146th Street to 96th Street, which represented the future limitations of the incorporate city. It is also important to note that the River Road corridor plays a part in the planning for transportation in the eastern part of Carmel. The existing River Road Corridor was developed solely as an access corridor for homes along the river to reach the county's transportation system. It was only after the development of residential areas west of White River that the significance of River Road became amplified. With that 1 increase in significance, the disjointed construction of the corridor became problematic. The Hazeldell Parkway project was created, in part, to deal with that issue. 1 THE 1985 COMPREHENSIVE PLAN UPDATE: The 1985 Update concluded that the Hazeldell corridor would become a collector corridor 1 for the far east side of Carmel, east of Gray Road. Under the portion of the Plan entitled "Existing Thoroughfare Conditions" the Hazeldell corridor was identified as a "possible future road linkage," however, there was little more detail offered as to the ultimate nature of this linkage. The 1985 Update made it clear that development would eventually consume the area, however, and recommended that the City initiate the long range planning and sensitivity necessary to assure that the future roadway linkage was preserved amidst the development pressures of the community east side. 1 8 Hazeldell Parkway Economic Development Areas III :111 The 1991 Update also THE 1991 UPDATE: The 1991 Update was a bit more specific with proposed connecting regard to the future plans for the Hazeldell corridor. It recommended a I 4 -lane roadway be developed, widening the existing sections of jn this Hazeldell pavement and linking those sections with new alignment to River Road corridor to the River at 116th Street. The 1991 Update, however, did not recommend the Road corridor, widening of River road from 116th to 96th Street (although it did is widening and recommend new segment of roadway connecting the portion south of straightening the 106th Street without the severe 90° turns in the current alignment. This alignment Of River ultimate linkage from 96th Street north to 146th Street was to connect a Road, to connect to vastly improved 96th Street Corridor (which is currently under construction). 96th street west of the 'O proposed new bridge. In the section of the 1991 Update Summary entitled, "Thoroughfare Plan Description," however, there was specific mention of the fl importance of the Hazeldell corridor. This section states, "extend between Cherry Tree Road and 116th Street and widen to four lanes as a north -south primary arterial for northeast Clay Township...it is fl proposed as a parkway." The 1991 Update also proposed connecting this Hazeldell connection to the River Road corridor, widening and straightening the alignment of River Road, to connect to 96th street west 1 of the proposed new bridge. It is appropriate to note one issue with regard to Gray Road, which is I the next major roadway to the west of Hazeldell. The 1991 Update says, "If Hazeldell Road is constructed as proposed north of 116th Street, further widening of Gray Road to the north should be III unnecessary." This represents a clear and unmistakable indication that planners project that the Hazeldell corridor will ultimately overtake Gray Road as the primary north south collector corridor on the east side 1 of Carmel, thus elevating the priority of the project. III "2020 VISION "/THE 1997 UPDATE: The 1997 Update projects that the City of Carmel will have been totally developed within 20+ years. At that point, the city must have its infrastructure in place to support and ill maintain its quality of life, since no further growth will be possible without redeveloping certain areas. The Update expresses concern that east -west corridors be developed in order to avoid the segmentation of the city into three separate areas where transportation between the areas t II is limited. The Update also encourages "direct access from regional transportation systems must be available to high intensity commercial I I nodes." This suggests that corridors like Hazeldell must provide access to commercial areas such as 96th Street and further underscores the importance of full development of the Hazeldell corridor. 1 Hazeldell Corridor Economic Development Plan 9 11 II 1 ..."continuous north- The 1991 Update also charts the Hazeldell corridor as a collector and a south access should be parkway. It is clear that the roadway is to be designed to handle traffic, enhanced in the eastern but also to handle pedestrian and bicycle traffic with a lower intensity than other corridors. Under the section entitled, "Overall Township edge of the township Mobility Recommendations" the Update states, "continuous north -south through the access should be enhanced in the eastern edge of the township through construction of the construction of Hazeldell Road...when completed this facility will Hazeldell Road... when provide the only continuous north -south access throughout the township, completed this facility east of Keystone Avenue...this roadway should be developed as a will provide the only parkway.' 1 continuous north -south In the 1991 Update, however, it is appropriate to note that the map access throughout the shows the Hazeldell corridor in a re- aligned configuration. Although township, east of the "proposed Thoroughfare Plan" map shows improvements to the River 1 Keystone Avenue... Road corridor, as previously suggested, the map also clearly shows an alternative alignment connecting the Hazeldell corridor to the Gray Road corridor, south of 116th Street. Furthermore, in the map entitled, "Alternative Transportation Component to the Thoroughfare Plan," the re- aligned corridor is shown as a "separated, parallel multi -use paths" which reinforces the intent to develop the corridor as a parkway, with alternative transportation and recreation modes accommodated. Finally, the "Five Year Capital Improvement Plan (CIP) recommends the development of the Hazeldell Parkway corridor as a "useful tool to direct growth." Thus, it is absolutely clear that the planners intended that the development of this parkway was one of the higher priority projects to be considered within the context of the 1991 Update. 1 SUMMARY: It is clear that the importance of the Hazeldell corridor has increased as Carmel has grown. It is equally clear that the project has emerged as one of the higher priority transportation projects over the last 6 years. The linkage of residential and commercial developments on 146th Street with the high- intensity commercial corridor along 96th Street, as well as the more moderate intensity commercial development at Plum Creek, is a matter of substantial importance to the overall development of the City of Carmel. The completion of Hazeldell 1 Parkway will enhance the ability of Carmel residents to reach commercial areas and to circulate through the community. Significant investment has also been made in the 96th Street corridor. Although the government jurisdiction over this corridor is divided, it is appropriate to note that business economies often do not directly respond to government jurisdictions. People working on the south side 10 Hazeldell Parkway Economic Development Areas 1 1 f 1 I By completing of. 96th Street are more likely to live in Carmel than anywhere else. Hazeldell, northeast Similarly, people living in Carmel are more likely to shop along the 96th Street corridor than people in Indianapolis. Combining these two II side and far east side influences suggests that it is appropriate to view the area in the context residents can easily of its economic relationship with the community, rather than taking a III travel to commercial strict legal view of the issue, limited by the jurisdictional issues. centers like Plum Creek as well as to A similar situation exists along 146th Street. Without Hazeldell, Carmel the 96th Street residents are in fact encouraged to seek commercial opportunities corridor. outside of Carmel. Since there is no complete thoroughfare corridor on the east side, the residents of the northeast side are generally forced to II use 146th Street, thus seeking commercial opportunities which are located outside of Carmel. By completing Hazeldell, northeast side and far east side residents can easily travel to smaller commercial centers U like Plum Creek as well as to the 96th Street corridor. As such, the completion of Hazeldell will enhance commercial activity in Carmel. 0 New growth on the far east side of Carmel must be linked with the 96th Street corridor in order for new growth along 96th Street to be generated. Carmel has a significant investment in the 96th Street I corridor, and despite the jurisdictional issues, it is in Carmel's best interests to have a healthy retail mix along the 96th Street corridor. These issues all serve to justify the conclusion reached by the I comprehensive plans that the Hazeldell Parkway corridor is one of the most important projects within the City at this time. I The Hazeldell Parkway project is included in the City's Capital Improvement Plan (CIP). The project at this time is proposed as an enhanced parkway cross section, with two driving lanes, a broad median 1 and accessory pathways, which is capable of being economically expanded to a 4 -lane facility without additional right of way. The estimated cost of the project, as listed in the CIP, is $20,200,000. I 1 1 1 i Hazeldell Corridor Economic Development Plan 11 ,1 1 The Economic CREATION OF AN ECONOMIC DEVELOPMENT AREA Development Area must be created THE PROCESS: A community may choose to create an Economic through sequential Development Area to implement an economic development strategy within an area. As provided in Indiana law, the community can use a approval actions by number of development incentives to recruit new business or create new the Redevelopment economic opportunities for its citizens, including various forms of public Commission, the Plan financing such as the use of County Option Income Tax (COIT), Commission and the Economic Development Income Tax (EDIT) receipts and tax increment City Council, following financing (TIF). The creation of an Economic Development Area is part of an overall strategy for implementing a community's economic the statutory process. development plan. 1 The Economic Development Area would be directly administered by the Carmel Redevelopment Commission (CRC). The Area must be created 1 through sequential approval actions by the Redevelopment Commission, the Plan Commission and the City Council, following the statutory process. Creation of an Economic Development Area enables the 1 community to issue tax exempt municipal bonds payable from a number of revenue streams to pay for public improvements in the Area which would generate and shape economic growth. 1 It is important to note that the designation of an Economic Development Area includes no powers of eminent domain within the area. Therefore, the CRC will have no power of eminent domain in the Area, and may not acquire land without the owner's consent under Indiana law (I.C. 36- 7- 14 -43). Voluntary acquisition of land, however, is allowable under these provisions. The recommendations contained in this report will not include any proposal for the use of eminent domain by the Redevelopment Commission, however, voluntary acquisition of land for economic development purposes may be included. This provision, however, should not be construed as any limitation upon the powers or actions of the incorporated City of Carmel to act in partnership with the CRC to implement any project(s). IDIOSYNCRACIES OF THE HAZELDELL PARKWAY PROJECT: The recommended parkway project involves a stretch of roadway serving a broad range of development. While upscale residential development along the proposed roadway is not, generally a factor in the overall economic development of the community, providing access between economic development nodes and growing residential areas is a critical factor. Upscale residential areas represent the disposable income that underwrite the profit margins of retail outlets. Providing efficient 12 Hazeldell Parkway Economic Development Areas 1 ii 0 the Hazeldell transportation between these disposable income dollars and the retail Parkway project will areas which depend upon them is economic development in its most essentially allow the fundamental form. Consequently, development of the Hazeldell 1 Parkway corridor comprises a critical link between the existing City of Carmel to commercial development along 96th Street, the proposed commercial i capture retail development along the Hazeldell corridor at Plum Creek, and the 1 0 business which might upscale residential development which is ocurring in the area. s otherwise go to 1 Westfield, Fishers or The definition/creation of an economic development area is intended to Indianapolis. support commercial and industrial areas which represent job creation and tax base enhancement opportunities. As such, the Hazeldell I Parkway project essentially links the disposable income represented by vast amounts of upscale residential development with commercial locations in Carmel at 96th Street and at the proposed Plum Creek 0 commercial development. In doing so, the Hazeldell Parkway project will essentially allow the City of Carmel to capture retail business which might otherwise go to Westfield, Fishers or Indianapolis. These retail fi dollars represent a vital component in Carmel's local economy, and development of the Hazeldell Parkway will assure that Carmel has the optimal opportunity to capture this retail development to serve its 0 citizens. The narrative presented above clearly proves that the community has used the comprehensive planning process to build consensus for the Hazeldell Parkway project, therefore, the primary ll function of this Economic Development Plan is to examine and describe the linkage between the project and a viable source of funding for its construction. 0 FINDINGS OF FACT.' 0 Indiana Statute IC 36 -7 -14 provides for the formation of an economic development area in locations meeting the following criteria: II 1. The plan for the economic development area: promotes significant opportunities for the gainful employment of its citizens; attracts major new business enterprise to the unit (of H government); retains or expands a significant business enterprise existing in the unit, OR; meets other purposes of redevelopment and economic development. 0 2. The plan for the economic development area cannot be achieved by regulatory processes or by the ordinary operation of private 0 enterprise because of: lack of public improvements, existence of improvements or conditions that lower the value of land below that of nearby land; multiple ownership of land, OR; other similar conditions. 11 Hazeldell Corridor Economic Development Plan 13 ii 0 3. The public health and welfare will be benefited by the ...completion of the accomplishment of the plan for the economic development area. Hazeldell Parkway will make this new 4. The accomplishment of the plan for the economic development area will be a public utility and benefit as measured by: the commercial attraction or retention of permanent jobs; an increase in the development accessible property tax base; improved diversity in the economic base OR from four directions, other similar benefits. enabling the 5. The plan for the economic development area conforms to other development to capture development and redevelopment plans for the unit. disposable income dollars, and creating a The following analysis will set forth the extent to which the planning convenient shopping area can meet the requirements of the statute stated above. The Plan will address each of the five required statutory findings individually to opportunity for determine whether the area can meet the statutory tests. residents of the area. Finding #1: "...meets other purposes of economic development." The proposed Hazeldell Parkway project has been contemplated in the comprehensive planning for the community for almost three decades, and the analysis performed in preparation of this Economic Development Plan indicates there are several levels of justification for the project. The function of the proposed corridor is to provide a low intensity transportation linkage between the northeast and southeast sides of the community. But one of the primary issues resolved by the 1 construction of Hazeldell Parkway is the capture of retail business emanating from Carmel's upscale residential areas on the far east side of the city. 1 Without the Hazeldell Parkway, residents of the far east side of Carmel are actually forced away from the commercial centers of Carmel (located along the US431 and US31 corridors) due to severe traffic constraints. For example, the Plum Creek commercial center is only marginally accessible due to the current road configuration, but completion of the Hazeldell Parkway will make this new commercial development accessible from four directions, enabling the development to capture disposable income dollars, and creating a convenient shopping opportunity for residents of the area. In addition, the Hazeldell Parkway will also connect these upscale residential areas to the retail corridor at 96th Street, thus allowing more Carmel businesses to capture a greater share of the trade from Carmel residents on the east side of the community. At present, most of this trade appears to be lost to Westfield and Fishers. 1 14 Hazeldell Parkway Economic Development Areas 1 111 ii Without the The Hazeldell Parkway project essentially provides a low- intensity "back (Hazeldell) door" between the developed commercial corridor in Carmel, parkway, other particularly along US431 (both as an employment center and as a shopping opportunity), and the residential areas of the northeast side. commercial areas Construction of the parkway will reduce traffic on US431, making it will be developed more efficient, as well as providing efficient links between income I outside of Carmel centers and commercial centers which depend upon those dollars to to serve the needs survive. Without the parkway, other commercial areas will be of the Carmel developed outside of Carmel to serve the needs of the Carmel market. market. Secondarily, as those additional centers are developed, there will be I increasing market pressure on the Carmel retail areas, straining their economic viability. In its purest sense, the Hazeldell Parkway project serves as assurance that the residents of Carmel will be linked directly 1 to the commercial centers of their own community, rather than letting that market be served in other municipalities. This consideration also carries the secondary and tertiary impact of securing the property values for Carmel's commercial centers as well as the employment base which resides in those centers. Thus, it is the finding of this Economic Development Plan that the Hazeldell Parkway project "meets other 1 purposes of economic development" as provided in the statute. I Finding #2: "...the plan for economic development cannot=be achieved...because of lack of public improvements...." II The City of Carmel is intimately familiar with the concept of using the regulatory processes to require developers to invest in necessary public facilities. The City and Plan Commission have used this development 1 tool more effectively than any other City in Indiana. In this case, however, the ownership of the land, the complexity of the project, the magnitude of its impact, and the time necessary to implement the 1 project through regulatory means are such that opportunities will be lost if the project is not pursued soon. 1 New commercial developments are coming on line, however, those developments cannot generate sufficient profit margins to be burdened with the requirements of developing a full parkway which would include such a heavy investment in accessory pathways. Clearly, with bicycle paths, sidewalks, trails and other amenities which are not of service to the developers, but to the community, the Hazeldell Parkway is a more suitable project for public financing. Further, developing the corridor on an incremental basis, with one segment here and another Hazeldell Corridor Economic Development Plan 15 1 11 1 In this case... the there, is also not preferred, although that approach is usually required 1 ownership of the land, when the regulatory process is driving the project. Given these the complexity of the constraints, it is clear that, if the City wants a single, viable project to develop an integrated parkway with significant residential amenities, it project, the magnitude must be undertaken in total and with locally controlled accessible funds. of its impact, and the time necessary to For these reasons, it is concluded that the lack of a developed implement the project transportation corridor, in accordance with the recommendations of the through regulatory Comprehensive Plan for the area, has the potential to restrict economic means are such that development both at 96th Street and along the Hazeldell corridor. The construction of the Hazeldell Parkway will alleviate this restriction, and 11 opportunities will be y will provide for the necessary transportation link between the residential lost if the project is areas of the far east side of Carmel and economic development on these not pursued soon. two east -west corridors. Without this ublic improvement, i p it is projected that new commercial developments will be undertaken outside of Carmel, resulting in the loss of market share and causing economic strain on the existing commercial areas of the City. Therefore, finding #2 is that the economic development plan for the area cannot be realized because of the lack of public improvements. Finding #3: "The public health and welfare will be benefited..." 1 An efficient transportation system represents a direct benefit to the health and welfare of a community. As a health issue, air pollution attributable to auto emissions is worst when cars are not moving. The exhaust fumes hover near the ground, to be carried away from the area only by ambient winds. When the car is sitting still, it generates more pollutants (because of increased operating time) and pollutants are not dispersed until the aerodynamics of the car are activated to scatter them. The Hazeldell Parkway projects was conceived as a means of increasing the efficiency of the transportation system on the east side of Carmel. As noted previously, the 1991 Comprehensive Plan Update notes that 1 the Hazeldell project would reduce the need for improving Gray Road. By constructing the Hazeldell Parkway, the increased efficiency of the overall transportation/thoroughfare system would definitely have a 1 positive impact on the health of the community at large. At the same time, by continuing to separate the Hazeldell corridor from the Gray Road corridor, more long -term traffic capacity is afforded to the system. 1 Secondly, the welfare of the community would be benefited by the construction of Hazeldell Parkway. The parkway would shorten travel time and distance for east side residents to reach commercial and employment centers within Carmel, thus reducing the operating time of 16 Hazeldell Parkway Economic Development Areas 1 I t III constructing the vehicles, reducing fuel consumption, and increasing leisure time. In Hazeldell Parkway addition, as noted above, a direct benefit of the Parkway is the linkage the increased of the residential areas (and their resident disposable incomes) with 1 employment and commercial centers. Without a direct, efficiency of the efficient linkage between these two interests, markets will become p overall transportation/ separated, and new commercial areas will be built in other cities to a t horoughfare system s erve this east side market. Therefore, as an economic development would definitely have issue, the construction of the Hazeldell Parkway is a means of assuring a positive impact on that Carmel residents will continue to shop in Carmel stores. ,ll the health o f the It is clear from these considerations that the public health and welfare community at large. will be benefitted by the completion of the Hazeldell Parkway project, ll in accordance with Finding of Fact #3. H Finding #4: "The accomplishment of the plan will be a public utility..." 0 The implementation of the Hazeldell Parkway project is expected to benefit the City of Carmel and its residents by increasing employment opportunities in the commercial areas, increase the property tax base by 0 encouraging and facilitating new development, and provide a stronger physical link between Carmel's commercial areas and the residents whose incomes support those commercial areas. D The Hazeldell Parkway will link 146th Street on the far north side of the City with 96th Street on the far south side. These extremities of 111 development are often lost to the community's commercial markets because their physical location actually ends up being closer to products and services in other communities. At each end of the proposed I Hazeldell Parkway, there is significant undeveloped land which is expected to develop more quickly and more fully because of the I development of the parkway. In addition, the construction of the Hazeldell Parkway will immediately benefit the Plum Creek development by increasing access between the commercial center and I the residential markets it seeks to attract. This is especially true of 96th Street. Immediately south of 96th Street, I the City of Indianapolis created an Economic Development Area and has dedicated the tax increment from new developments in that area to the cost of a new bridge over White River, as well as a widening project for 96th Street, over to Allisonville Road. This 96th Street improvement makes 96th Street more of a regional corridor, and fulfills the comprehensive planning for Fishers, Carmel and Indianapolis with 1 regard to the area. At this time, however, the far east end of the 96th 11 Hazeldell Corridor Economic Development Plan 17 1 These extremities of Street corridor in Carmel is basically undeveloped (with only the 11-11 development are often American Aggregates operation located on the north side of the lost to the corridor). Therefore, it is expected that the confluence of the Hazeldell Parkway and the 96th Street improvement project will combine to community 's stimulate new growth on the north side of this corridor, between the commercial markets river and the existing development to the west. These new because their physical developments will provide new employment opportunities to residents of location actually ends the area, in accordance with Finding #4. up being closer to products and services In addition, the development of additional land will generate new 1� property tax base for the City. The land south of 106th Street is only in other communities. marginally developed, and even the existing developments along the present corridor are disconnected from the 96th Street corridor by inadequate roadways. Therefore, the construction of the Hazeldell Parkway is expected to open up these areas for new development. Finally, construction of the Hazeldell Parkway will provide Y� y p de a stronger transportation link between existing, upscale residential areas and the commercial areas within the City of Carmel, including the Plum Creek area. Commercial centers exist on disposable income. The existing nature of the commercial market is such that profit margins on high- volume consumer goods are razor thin. The only means of surviving in this competitive market is to capture the market for those goods and services where margins are higher and those products are generally consumed by people with higher incomes. The residents of the far east side of Carmel fall into this demographic sector, and the Hazeldell Parkway will directly serve those residents by linking them efficiently to commercial centers within Carmel. In fact, it is logical to project that the Hazeldell Parkway will actually increase the economic viability of commercial centers within Carmel by removing traffic restrictions which currently encourage consumers to shop outside of the City. Therefore, by providing an efficient transportation link between these residential areas and the commercial centers of the City, Carmel businesses can capture these consumers. On these bases, it is concluded that the Hazeldell Parkway project meets 1 the terms of Finding #4. Finding #5: "The plan...conforms to other development plans..." This entire Economic Development Plan was built upon the findings, conclusions and recommendations of previous planning for the City of Carmel. Comprehensive Plans for the City were reviewed from 1961, 18 1 18 Hazeldell Parkway Economic Development Areas II 1 In fact, it is logical to 1970, 1971, 1985, 1991, and 1997, and the parallels between this project that the Economic Development Plan and the evolving Comprehensive Plans for Hazeldell i Parkway will the City were detailed meticulously in the section of this report entitled "Relationship to Previous Planning Efforts." Without being redundant, actually increase the it is sufficient to say, based on the analysis performed in this previous F economic viability of section, that this Economic Development Plan, and the proposed project, i commercial centers conform in all respects to the overall development plans for the:. within Carmel by community, in affirmation of the requirements of finding #5. removing traffic restrictions which CONCLUSIONS currently encourage D consumers to shop Based on the examination of facts and analysis set forth in this outside of the City. Economic Development Plan, the following conclusions are offered: I 1. That the Planning Area studied in this Economic Development Plan has been formally identified as the primary benefit area for the proposed improvements. II 2. That existing development in the Planning Area is suffering from the lack of public improvements, especially transportation corridors which Zink the residential developments of the area to 1 the commercial centers within the City of Carmel. 3. That future development of the Planning Area, as well as the I proposed parkway project, is in compliance with current zoning and land use provisions as expressed in the Comprehensive Plan. III 4. That future business and residential development will benefit the City of Carmel by capturing new economic opportunities as a result of improved efficiencies in the thoroughfare system. 0 5. That new economic development in the area can have a positive economic impact on the community at large in the form of new job opportunities and additional tax revenues. II 6. That if the Economic Development Area is not designated and the funding for implementation of the strategy is not pursued, the opportunity to provide a long -term solution to growing traffic 1 problems and capture existing market opportunities will be lost. 3 7. That economic development opportunities exist along the ill Hazeldell Corridor. 8. That it would be appropriate for the City of Carmel to capture new economic development at the south end of the proposed Hazeldell Parkway by establishing an Economic Development Area between the White River and the existing commercial center along the north side of 96th Street. Hazeldell Corridor Economic Development Plan 19 1 11 1 9. That it would be appropriate for the City of Carmel to capture new 1 This Plan's economic development along the Hazeldell Corridor at Plum Creek conclusions are by establishing an Economic Development Area at that location. predicated on the 1, continued performance The public bodies have done an outstanding job of examining growth of the same sort of proposals and designing funding packages which are appropriate to the objective analysis and community and commensurate with the benefits to accrue to the public policy direction community. This Plan's conclusions are predicated on the continued which have preceded performance of the same sort of objective analysis and public policy I, this Economic direction which have preceded this Economic Development Plan, and Development Plan, and which have formed the basis for keeping Carmel moving forward without gridlock. which have formed the basis for keeping Carmel moving RECOMMENDATIONS 1 forward without gridlock. Based on the information and conclusions presented, the following recommendations are presented for the consideration of the Carmel Redevelopment Commission. 1. That the Carmel Redevelopment Commission (CRC) should 1 designate two Economic Development Areas in support of the implementation of the Hazeldell Parkway project. 2. The "96th Street/Hazeldell Parkway Economic Development Area" should be designated as an Economic Development Area in accordance with IC 36 -7 -14. (Identified on Map 1.) 3. The "Plum Creek/Hazeldell Parkway Economic Development Area" should be designated as an Economic Development Area in 1 accordance with IC 36 -7 -14 (Identified on Map 1). ESTIMATED PROJECT COST 1 The project is estiamted to cost $20,200,000 to construct as a two -lane roadway, with amenities, which can be efficiently expanded to four paved lanes when conditions warrant. 1 1 1 20 Hazeldell Parkway Economic Development Areas 1 1 I 1 BOUNDARY DECRIPTIONS OF ECONOMIC DEVELOPMENT AREAS i The Economic Development Plan recommends the creation of two Economic Development Areas on Carmel's far east side which will be I I supported and enhanced by the Hazeldell Parkway project. The two areas are described and recommended for designation to the extent that each area is within the corporate limits of the City of Carmel— The The boundaries of the two areas are described as follows. PLUM CREEK/HAZELDELL PARKWAY ECONOMIC DEVELOPMENT AREA: I The following description of the Plum Creek/Hazeldell Parkway Economic Development Area was taken from the "Land Description" on the developer's plat which was submitted to the City of Carmel as part I of the zoning approval process. The area is described as follows: "Part of the Northeast Quarter of Section 28 in Township 18 North, Range 4 East in Hamilton County, Indiana, described as follows: Beginning at I the Southeast corner of said Northeast Quarter, thence North 00 degrees, 20 minutes 43 seconds East (assumed bearing) along the East line of said Northeast Quarter a distance of 1376.66 feet; thence North 89 1 degrees 55 minutes 53 seconds West a distance of 287.43 feet; thence South 00 degrees 20 minutes 43 seconds West, parallel with the east line of said Northeast Quarter, a distance of 561.00 feet; thence North 1 77 degrees 52 minutes 47 seconds West a distance of 298.33 feet; thence South 00 degrees 20 minutes 43 seconds West, parallel with the I east line of said Northeast Quarter, a distance of 874.50 feet to the south line of said Northeast Quarter; thence South 89 degrees 35 minutes 24 seconds East along said south line a distance of 579.48 feet III to the Beginning Point, containing 14.738 acres, more or less." 96TH STREET/HAZELDELL PARKWAY ECONOMIC DEVELOPMENT AREA: I The 96th Street/Hazeldell Parkway Economic Development Area is generally described as the area within the corporate limits of the City of Carmel which begins at the intersection of the centerlines of 96th Street I and Gray Road, extending north along the centerline of Gray Road to its intersection with the corporate limits of the City of Carmel, thence extending west along the corporate boundary of the City of Carmel (past the point where the corporate boundary of the City turns north), and m extending beyond that corporate boundary line (within the corporate limits of the City) to Randall Drive, then turning south along the east I right of way line of Randall Drive to the centerline of 96th Street, then east along the centerline of 96th Street to the point of beginning. /crhdedp D Hazeldell Corridor Economic Development Plan 21 O c i i i i i i